mandate the use of "learning management systems."
Therein lies the rub. Mandated systems are a radically different thing from “systems which are available for use”. This quote from the aforelinked IHE piece is quite telling:
“I want somebody to fight!” Crouch said. “These things are not cheap -- 300 grand or something like that? ... I want people to want it! When you’re trying to buy something, you want them to work at it!”
In the end, it’s about “procurement”, which is quite different from “adoption” which is itself quite different from “appropriation”.