It may or it may not. I think the absence.... What you don't want is a situation where they can point to Canada, for example, or to other G-8 countries, and say “We're going to follow their example”.
In other words, if there is no legislation—and that's why we welcome this legislation—you don't want them to point to a G-8 government and say, “They're not adopting this kind of legislation. They're not prepared to require mandatory reporting requirements. Why should we? Why should we move in that direction?” You don't want that.
To answer more directly your question, the answer is that in some instances, yes, it is a question of political will. I think you hit the nail on the head.
That said, I've worked in countries where the political will is there but there's a lack of resources, and the government is not prepared to finance the building up of that capacity.