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
It’s more than that - he failed to create PayPal so his group bought a competitor, he didn’t found Tesla or spaceX - he claimed he did, then reached settlements with the actual founders to not contest his claims. He did start the boring company. It didn’t get off the ground because he can’t build a team