Because as a percentage of global C++ builds they’re used in probably 0.0001% of builds with no line of sight to that improving.
They have effectively zero use outside of hobby projects. I don’t know that any open source C++ library I have ever interacted with even pretends that modules exist.
I'm not the PC but I think you miss most of the pain points due to: 'personal' projects.
There's not a compatible format between different compilers, or even different versions of the same compiler, or even the same versions of the same compiler with different flags.
This seems immediately to create too many permutations of builds for them to be distributable artifacts as we'd use them in other languages. More like a glorified object file cache. So what problem does it even solve?
BMIs are not considered distributable artifacts and were never designed to be. Same as PCHs and clang-modules which preceded them. Redistribution of interface artifacts was not a design goal of C++ modules, same as redistribution of CPython byte code is not a design goal for Python's module system.
Modules solve the problems of text substitution (headers) as interface description. It's why we call the importable module units "interface units". The goals were to fix all the problems with headers (macro leakage, uncontrolled export semantics, Static Initialization Order Fiasco, etc) and improve build performance.
They succeeded at this rather wonderfully as a design. Implementation proved more difficult but we're almost there.
They have effectively zero use outside of hobby projects. I don’t know that any open source C++ library I have ever interacted with even pretends that modules exist.