As in: The CDC is a huge government bureaucracy that employs (and cannot swiftly fire) enormous numbers of people from diverse backgrounds. If RCTs aren't the standard, well then why not also wear crystals to ward off the virus? They're inexpensive, and they couldn't hurt-- you can probably find a poorly controlled study to support it too.
The CDC is not human, it is a meat-and-paper-political-machine. You cannot understand it's actions under the same framework you'd use to judge another person.
The CDC must contain internal defenses against hokum which are much stronger than any person needs to personally have.
So why does the CDC sometimes provide overly conservative advice even when doing so causes death? For the same reason the scorpion stings: it's in its nature.
It's far from clear to me that a CDC which did make a more prudent facemask recommendation would actually be a better organization overall. Sure, it would have gotten this one right, but it would have likely given other bad advice as a result.