This happens in the Private Sector as well. I work for a manufacturing company with 6+ facilities (two major, third major greenfield in design and 3 minor facilities) We have 3 engineers for the whole company. We mostly just manage the contracted engineering firms. It sucks for me as a "junior" Senior Project Engineer because I rarely get a chance to learn what my contractors are doing, too busy managing them and coordinating. Naturally, in order to be a better PM I need to know their skills at least at a 500' level. Hard to learn to code PLCs when I'm too busy managing 5 PLC programmers on a project for a month or two, then moving onto something else that might not even have a PLC involved.