If they booked 0 in revenue but helped other agencies save money by lower procurement cost or generate revenue, is that a problem?
It sounds like upper management doesn't want to do the hard work of accurately pricing their services, or maybe is intentionally undercharging to ensure they get to provide the service. In some ways, they're definitely in a bind -- if they undercharge, they're crowding out private competition, and if they overcharge, they look like greedy bureaucrats.