Re: easy solution
I get the feeling you may be deliberately misunderstand the situation. Yes the budget for CMO and AMO is a fair portion of the total budget but the scope of their responsibility is significant. You are talking about maintaining, commissioning and decommissioning all their facilities as programs come and go, dealing with all the training and safety costs, the IT spending, the list is pretty long. They have to deal with keeping facilities just because the state its just because a senator pulled some strings or with , in the space of a couple of years demolishing or decommissioning 70+ buildings at one site alone because constellation was canceled, or with downsizing the rocket propulsion testing facility at White sands after the shuttle got canned. They built a groundwater treatment plant due to some contamination, the budget also covers buying supercomputers ($150 m a year on IT iirc).
Seriously, those two departments are a catchall that deal with pretty much anything and everything that isn't directly related to a currently in progress project. If anything it seems like they deliberately shift costs out of projects and into this budget to make their missions look cheaper.
I don't advocate writing a blank check but a normal company doesn't work the same way, NASA isn't a company. It has to operate in a world where maintaining any kind of mission stability is akin to wallpapering fog. How efficient is any company going to be when you give it a task as large as constellation then can it 6 ish years later.
Companies like space x etc can do what they do cheaply and efficiently because they don't have to deal with anywhere near as many unknowns. NASA put men on the moon over 40 years ago from a start point of not having a clue what most of the problems would be, these companies are rethinking an existing solution to make it more efficient.
NASA is cheap, the f35 program would find NASA for somewhere around 50 years. We throw money at the military like crazy, we found $800 + bn for the war in Iraq yet we can't find the money for peaceful space exploration?