Stodgy, conservative organisations like banks and the military created the market for hardware security modules, FIPS-140 dongles, smartcards, TPMs and so on.
And they couldn't care less about sticking it to the NSA by rejecting the NIST curves. Whereas if you say "government standards compliant military grade encryption" they like that a lot.
If you aren't one of those organisations, but you'd still like to use a HSM/TPM/smartcard, no Curve25519 for you.
