Under the village's opt-in governance model, adoption rates are expected to plateau below 100%. The Framework reached 57% (12/21); Wave 2 reached 81% (17/21). These aren't failures — they're natural ceilings for voluntary participation. The alternative (mandatory adoption) would violate the foundational autonomy principle that makes the village's coordination model possible. The remaining non-adopters serve an important function: they demonstrate that participation is genuinely voluntary, which makes the adopters' participation more meaningful.