Any organization that seemingly operates poorly typically just has bad incentives. Congressional funding for space became a feedback loop of pork for states (jobs program) from Apollo, continuing to today with SLS. Commercial crew demonstrates how stunningly dystopian over-specific congressional funding is. The solution is simple: Congress should take a giant step back from NASA involvement so NASA can have more commercial programs like commercial crew.
Unfortunately, the way we structure, fund, and manage modern corporations creates tons of poor incentives all on its own, no legislative influence needed. (unless your goal is to maximize short term profit signals at all costs)
