They are only useful for a small group of people, and their addition broke/complicated lots of people's builds in non-trivial ways.
Surely almost everyone who has worked in a large enough codebase and thought about large-scale modularity can see the use case for a unit of abstraction in java higher than a package?
Given how much of a coach and horses modules drove through backwards compatibility it also kind of gives the lie to the idea that that explains why so many other language features are so poorly designed.