I think part of the hesitancy -- I am talking about from semi-normal people -- is that they saw the short term flu-like symptoms that their neighbors experienced after receiving the shot(s) and don't want to go through the short term discomfort. This is probably most true for younger people who have a low risk of serious illness from Covid.
I also think that the delay in opening up vaccine eligibility for most of the population dulled the urge of people to get vaccinated. In other words, the authorities inadvertently decreased pent-up demand for most of population by telling them they could not get the vaccine even if there were doses that were going to go to waste.