Why can't you refinance a upside mortgage if you current on payments to take advantage of low interest rates?

I make my mortgage payments on time but mortgage is upside down. I’d like to lower my payment by refinancing the amount owed but banks want me to go thru gov loan modification programs. Go there and you can’t qualify because your NOT behind on your payments. If I’m on the hook for the mortgage [...] http://bit.ly/qNtr61