This is the case with a lot of organizations like charities and government contractors.
When you have so many layers between the money source and sink, each layer takes some % cut like a parasite and each layer fights for its survival like a parasite.
It's like how healthcare.gov could have been made by 4 people in a garage being paid $100k/year each, but instead it required billions of dollars and thousands of people.
Less is more in software. Some of the best software ever written was written by one person (or a very small team). The more people you add to a project the less cohesive the code base becomes and the fewer people there are that can see the big picture.
It's like the company Simplifile - small company in Utah. They have only a handful of developers that build actual website front/backend infrastructure, and then they have a team of specialists whose job it is to become expert in all of the county laws across the USA and create requirements out of them.