And billing, and reporting, and regulatory compliance, and inventory management, and abuse detection, and routing, and operations, and...
"All" a kernel does (for some very large value of "all") is schedule userspace programs and manage the system's physical resources (memory, disk, devices). You can reach a point where a kernel is done, in the sense that it meets those basic needs with an acceptable level of performance. Kernel developers don't make extra money for every new feature they add - if the system is good enough, then it's good enough.
As for "per locality business rules differ that's why so many lines of code.." seems like you can have a policy engine+DSL (JSON or YAML or custom policy language and engine) thus your code base shouldn't balloon to almost 100 million limes of code...