The challenge the NSA has is it possesses 2 separate missions that are often in direct conflict: secure the communications of the United States, and to collect, eavesdrop, and compromise the communications of other countries.
The United States Atomic Energy Commission of the 1950s and 60s had the same problem. Their mission was to both regulate nuclear power as well as research and promote the widespread adoption of nuclear power. Making things safe and keeping them safe while also making things easy and cheap are often in conflict. Ultimately it was split into two different agencies: One tasked with regulation and one Tasked with research and promotion.
I believe both missions of the NSA are important. However I believe it should be split into two agencies each Enthusiastically pursuing a single mission to the best of their abilities.
Imagine a cyber defense agency that does nothing but find and fix holes in computing infrastructure and major software projects. It pays for exploits and then works to patch them, promotes bug bounties, develops secure coding standards, audits open source projects, etc. Imagine something like The National Endowment for the Arts (NEA) that instead funds critical pieces of software like openSSL, etc.
Is that necessarily the best form? Probably not but it’s way better than what we have now: every time the NSA suggests changes to “make something more secure “ there is a looming specter that they are lying and are actually trying to compromise things.