NASA doesn't have effective control of their budget anymore. Congress holds the purse strings and uses them like a harness

NASA gets funding to do something - like go to the moon, or track CO2 emissions. But it comes with strings - sometimes you have to build a certain component in a certain congressional district, sometimes Congress chooses the design you have to use

It's a problem of politics and corruption. When the public supports NASA, they have more autonomy. When NASA gets a blank check, they do more with it - reusable rockets aren't a new idea, and when they cancelled the shuttle program NASA had brain drain. Some of those people founded spaceX - Elon didn't start it, he came in when they were getting off the ground, just like with Tesla