Once people get into a position where they have the potential to make changes,
1) it's easier not to make changes,
2) They got into high positions in the current system, so from their personal perspective, it's not as much of a problem
3) Bureaucratic inertia makes it hard for someone to effect this type of change before their tour is up.
Obviously there are exceptions, but human nature affects naval officers, too.
I think these two are the biggest contributers. And I hope that "Bureaucratic inertia" is the more potent of the two. Which, in my humble opinion, is mostly caused by 0-4's seeking fitrep bullets.