These orgs are not truly functioning per market principles, yet for various reasons are stuck in a captive energy state that no one dares to disturb.
It could be a niche product sold out to big orgs or other steady clients. It could be a subsidiary or some other steady org. Either way, there is no market pressure to really push such orgs to adapt.
Thus all this theater and moldy props. These orgs are not expected to improve, they will live, but required to demonstrate an effort.
This reminds me of some shitty restaurants or deserted "boutique" storefronts which stay in business for decades with no suply-demand explanation for such longevity. I guess, these may somehow have low operating costs and some strong funding source.