I spent last Fall at a low performing school. They were required to offer tutoring. There was a late bus available, but most children did walk to school anyway. Only about half of the students who were offered tutoring, took advantage of it. I don't know why. Tutoring did seem to make an impact for the kids who attended.
The school did everything they could do to "encourage" the tutoring. Kids who showed up for tutoring most of the time got lunches out and prizes for improvement. Kids identified for tutoring could not participate in ANY afterschool activity if they chose not to be tutored.
This same school was obligated to notify parents that their children could go to other district schools, transportation paid for by the district, NOT ONE parent took advantage of that. None of the schools in the district were very good anyway.
See, that is a lot of it. If the parents don't value it and the kids don't -- you can only offer it. I tutor right now; I am amazed at the bright and very good students who come. Occasionally I get remedial work, maybe half the time. The other half it is the really bright, really competitive students who are aiming for Harvard.