Yes taken a life of it's own is a good way to put it. At various points in time there may be a justification to add this position or this person to do something or to handle a specific need and over time that becomes less intensive from a resource need or even obsolete but the position never goes away it just becomes part of an increasingly bloated overhead that is seen as necessary to running the organization at a high level.And, like a lot of 'non-profits', the purpose, role, and needs of the organization does not match the expense sheet. It's taken on a life of its own. It's top heavy.
The only people that can do anything about it won't do anything about it because they are a beneficiary of the problem. Schools have bigger more pressing matters to focus on than to take on a project of leading the charge to overhaul the sports oversight board.