Instead, the public starts from the stance that music should basically be free, and artists are lucky to be paid anything at all.
The purpose of statutory rates is to create an economic environment where businesses can operate without constant negotiation, and creators can earn a living.
Virtually no one is earning a living from Pandora or Spotify, so, it isn't working. Meanwhile the public has access to a functionally infinite amount and variety of music for nothing, or next to nothing.