It all comes down to public trust in the system, willingness of adoption and life circumstances.

Seems many Americans don't trust the government initiated program wirh their money even thought it was routed through the private sector.

Older people are very adverse to change. Younger people may be open to a new pattern, but let's face it, anything that means less money in your hands wont be happily accepted.
Obama should have made it a mandatory tile instead of optional. It's a tough call, will sound harsh, but it's for their own good.

The condition of life dictates our monetary decisions. You can't be neck deep in bills and talking about saving. This is probably the reason for the low turnout. The federal government should start this at your young age. Perhaps you get enrolled at your first real job? That way you get used to it on easier terms and actually benefit a lot over the years.