Even though, BSNL is not the sole reason for the delay in launching their 4G services, I still believe BSNL has the lion's share in it.
[1] They should have launched 4G services using the Band41 spectrum, which is lying idle in many states, where they have NOT returned that 20MHz of spectrum (returning them in Metros and Category A circles itself was a bad idea).
[2] They have many places with just 2G coverage, not just in rural areas, but also the out-skirts of many towns, cities and highways. They should have launched 4G services there first (using the 3G spectrum) and gradually increase inside the cities, where every operator has 4G coverage already. This will improve their revenue and subscriber additions dramatically, imho.
[3] Since they have many towers connected with fiber, the experience would be good enough even with 5MHz of spectrum. Once DoT allots 5MHz more spectrum, they can even surpass competition wrt speed, imho (Adding 1 more block can be done on the fly, if I am not wrong).
[4] They should have given more infos reg VoLTE supported phones in areas where they have 4G coverage currently. Info about their VoLTE supported phones is much more scarce than whereabouts info of missing flights in Bermuda Triangle.
But I agree that, expecting BSNL to think outside the box is a crime and I feel sorry for the same...