Yes, courts are sometimes inadequate for pursuing legal change, because the courts can only react to an existing case or controversy. The courts cannot issue advisory opinions. They need to wait until something happens, or a person has violated a law before they can rule on the law. This means the courts cannot be responsible for proactive change.
When the court system fails, it's time to start an initiative petition. Getting a law changed isn't easy in America. When the court system fails to address someone's needs, an initiative petition to get the view of voters is one way to make a legal change to a particular local jurisdiction.