More likely Zuck was simple clueless

Zuckerberg on Libra: Talking first, rollout second

Speaking in an interview with Asia-based news outlet Nikkei on Sept. 26, Zuckerberg appeared to show a rare display of fear in the face of mounting regulatory scrutiny of Libra.

Facebook’s digital currency has come under fire from governments worldwide since its whitepaper appeared several months ago. High-profile regulatory hearings have so far failed to quash the negative reactions; governments fear Libra will undermine fiat currencysystems.
“Part of the approach and how we've changed is that now when we do things that are going to be very sensitive for society, we want to have a period where we can go out and talk about them and consult with people and get feedback and work through the issues before rolling them out,” Zuckerberg told the publication.

Much more likely he was swamped by the development of sandbox technologies and decided he needed more time o figure it out.  Most of the bigger investment banks are so far ahead of Facebook on this, they are building liquidity nets around a set of exiting investment portals.  Zuck can't figure it all out at once.