Unfortunately, a certain number of congregations are like people hooked on alcohol, drugs, food, etc. They are not open to transformation until they hit “bottom” –whatever that is for them. These congregations often spend all their reserve funds before they are open to transformation. They allow way too many people to leave the congregation or die before they are interested in transformation.
Interestingly, there is an upside to their procrastination. It is that when resources have been depleted these congregations are open to transitions and changes they were never open to before. Perhaps that is why they waited so long?