The ELVs were trialled in a Stellensbosch University league for a whole season before they were introduced, gradually, at higher levels.
From memory the aimless kicking only became a feature when introduced to professional rugby.
Therefore I'd say it has a lot to do with negative tactics and risk aversity by coaches.
Also, its unfair to say the ELVs in totality aren't working. The rules around collapsing the maul, lineout and replacing penalties with free kicks are working extremely well and speeding the game up.
Before the ELVs England (and Ireland too) had turned the game into a copy of American football, by slowing it down to a crawl and running pre-planned plays based off lineout and maul at almost every phase. The ELVs were designed to introduce a bit more spontaneity and pace back into the game and ensure the ball is in play more.
Change was definitely needed. I'd wait a while before we write the ELVs off.
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