Representative Suite Of Services Delayed?

Below is an excerpt from a memo that Social Security sent out last October. I don't think this happened, at least not in the sort of numbers that Social Security was talking about at the time. What happened?

Between December 2009 and mid-March 2010, SSA will mail invitations to 3,100 representatives, inviting them to register online and use our appointed representative services. A list of representatives selected to receive invitations for Phase I can be found on the Front Line Resource Kit at: http://eis.ba.ssa.gov/oesweb/frontline/resource_kits/Disability%20Direct_Resource_Kit.html