IMO, there are two different "chicken and egg" scenarios that need to be solved before significant changes can be made.
Athlete membership.
EP's don't want to require athlete membership at their events until a majority of the athletes are already members. (They understandably don't want to turn away most of their customers.) Gym owners don't really see a point in going through the trouble of registering their athletes until it is required of them by the events they go to. So basically, EP's won't require it until more athletes are registered - more athletes won't register until it is required.
USASF Power
Fair or not, there is a general mistrust of the USASF because they haven't seemed to be efficient at getting changes made. This makes many hesitant to give them even more money, authority, and power. From the USASF perspective, they don't have the money or power needed to get things done efficiently without going through many hoops, committees, and political BS. So, basically USASF says it needs more money and power to get things done, but people don't want to give them money and power because (in their view) they haven't been able to get things done with what they have.
(Related is that USASF can't afford to move out of Varsity headquarters, but people don't trust and don't want to give money to a group that is headquartered in Varsity.)