FAA is a Political organization, not an Operational organization. Doing what is politically least painful is their business. Congress is culpable in this whole charade, which is why I laugh my ass off every time a Senator or Congressman puffs up his chest and says "We'll fix this". The FAA is how it is, because that's how the Congress and Senate want it. It's money to their respective districts, nothing more.
Rant over for now.
I don't understand everything I don't know about this.