It basically starts with the administration in accepting and legalizing the use of BTC in the respective state. In many countries, the administration is still sceptical about the nature and properties of digital currency. It may be mainly because BTC is decentralized and not under the control of the state. Until the administration starts to accept the concept of cryptocurrencies, the local businesses would also steer clear. Nobody wants to upset the big brother 
I think by administration you mean the states which I think will take a longer time or no one can say that when will the state legalize bitcoin as Japan now has legalized for which no one expected. The better way is that we the users of bitcoin ourselves need to work for it to make it acceptable in the local market and to regulate it without any issue to the merchants.