Housing is about the least desirable form of real-estate development for land owners. That's why low cost market housing is built in former cow pastures outside of town and in town market rate housing development tends to be built for upper income and luxury buyers. That's why affordable housing has been done with public subsidy. First as public housing. Then as tax credit financing and housing vouchers. Recently as a condition of building market rate housing.
Real-estate is where wealth is parked with long time horizons. Pension funds and life insurance reserves and intergenerational personal wealth preservation. When wealth preservation is the goal or the investment horizon is thirty years or more, sitting on under-utilized land waiting for a commercial use on a triple net lease provides higher returns than selling houses. Even better if the land is producing rent off the sunk cost...and there's always a market for used car lots. Housing competes with every other use and most uses are much more profitable and stable.
Even leaving land vacant is better than converting to housing when the goal is wealth preservation. In wealth preservation, if you sell, you have to find someplace else to put the money. When real-estate is the wealth preservation vehicle, that means finding another parcel of greater value for equal cost. E.g. a more valuable parcel than the valuable one already in hand.