The point of a report is to provide a structured process and background for a set of technical or policy recommendations. It’d be perfectly normal for a report drafted by the efforts of 50 people to have an audience of 2-3 major decision makers - the point is the process for generating the recommendations. Further, it’d also be quite normal for a report on a specific topic to be used as an input to another process which generates its own outputs, meaning there’s little reason for people not involved in the latter process to read the original report unless they’re deeply interrogating the findings of the consolidated report.