You're absolutely right. They can be.
With that critical truth that you've touched on said... American civilian resident-facing government services tend to be organized and run with all the strong incentives being to make it good for everyone but the residents. Usually the workforce has a strong union and management has their goals, but us users have no strong force to exert except distant oversight in the form of Congress.
Some organizations escape this. Others do so partially at best. Most do not. State DMVs are notorious pits of utter misery, and this is generally an honest reflection of experience.
You can report a passport lost online, but you have to file a DS-11 in black ink at a post office to request a new one. This process can be easy or hard unpredictably, depending mainly on how nice the postal worker feels that day. There are few to no organizational incentives towards better customer service.
Why black ink? Because the State Department says so. And they don't have to care what you think.