The lobbying angle explains A LOT. Of course, it's entrenched players clinging on to their profits. Oh well.
The cost argument is interesting.. one would think it would be cheaper to build on already-developed lots, since no earth-moving and other infrastructure work is required -- but it looks like the structures must conform to a higher standard. Nobody cares if a panel topples in some remote field, but it one falls on someone's car, bad press and lawsuits.
I certainly hope things move forward and we see more solar over the desolate landscape of the endless parking lots in North America. If anything, the promise "free" power to the lot owners could tip the scales.