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Rory Byrne and Patrick Head proposed them in December 2010 for inclusion with the next set of engine regulations (which at the time were going to come into effect in 2013), but when the proposal was formally put to the teams, they rejected it. I believe they felt that the engine and powertrain regulations were already very complex and would provide significant challenges, so they felt that trying to work ground effects into the cars would be too much. After all, the last time there were significant revisions to the technical regulations - in 2009 - the running order was completely turned on its head. Where McLaren, Ferrari, BMW and Renault placed in the top four in 2008, by the end of 2009 they were third, fourth, sixth and eighth. The teams will keen to avoid a repeat of such an episode.
More like the teams feared the fact they have little knowledge about ground effects these days and that they would be spending significant amounts of money developing designs which could potentially be terrible. They'd rather stick to wing and floor-based aerodynamics where there is less chance of making a significant mistake.
Major rule changes always benefit some teams over others as they inevitably get their designs more right than others. The smaller the rule changes, the less the designers have to invent themselves and less time is dropped going down the wrong design path.
Its very disappointing that the teams don't feel its necessary to make these design changes as they were intended to help make the cars better at following through corners and hence creating better overtaking chances. Instead they prefer to rely on the cheap DRS system which generally provides a stop-gap solution which produces cheap overtakes but doesn't solve the original problem. Losing the quality in overtaking is the worst part of it all. To me DRS is basically trading quality overtakes for quantity of overtakes.