He had his chance on more than one occasion and he blew it.
That's for sure, but have you ever seen anyone as deficient in charisma as Swagger that the WWE brass wanted so badly to make it big?
He started with that goofy countenance; it was ridiculous but resulted in him winning a world title much quicker than you'd think an unknown ever could.
Then, he got serious in his attitude but the fierce expressions on his face looked ludicrous and he kept getting demoted further down on the roster.
Then, he was put on the shelf for months....and when he came back, the promised 're-package' looked exactly like his original one. When management got the message that the 'new' Swagger was no different from the old, they brought in a mouthpiece; Zeb Colter. It was a good move and Jack's pairing with Cesaro produced some pretty good action, but when Cesaro moved on, it left Swagger with Colter and.......nothing doing.
Why WWE management has been so determined to keep Swagger on the roster baffles me. It seems that when Vince McMahon gets something in his head, it stays there and can't be shaken loose.
So okay, if they want to keep Swagger as a jobber who goes about his business seriously, that's fine with me. He can still manage a good technical job in the ring and there's always a need for a good wrestler, I suppose.
Just keep him out of the spotlight and let him work. His value as a talent enhancer is probably very low at this point but every castle needs people to handle the menial chores.