M,
As much as I love Pope Francis I have to admit that you make an important point in your post.
Unfortunately, the case may be that the church structure just may be the problem. Please recall that all bishops are considered to be brother bishops and thus are equals. Pope Francis is the Bishop of Rome thus also one bishop among many. I'm thinking that is why he cannot simply order all of the other bishops to do as he says. Francis must do his teaching in an artful and Catholic way. 
My dear friend, a Catholic bishop once said that many in his diocese were against abortion. So I said isn't that what you want and a good thing. He said" yes, but. The but was because they were against abortion for some very wrong reasons like racial hatred, hatred towards the poor and just plain hatred. He pointed out that it was up to him to stop their hatred and TEACH them the real reasons why they should be against abortion. The Christ-like way to be against abortion. Many said he was soft on abortion."