So, I bet they actually do measure. Just not the way any sane person would expect. But this is what always happens if a happens if you try to run something, that is hard or impossible to measure, "economically". You revert to one of the things you can trivially count and claim that more (or less) is better. If you are one of the smart ones you dabble with relative and not absolute numbers. This is especially true for political or public institutions without any goal above "accounting of men and things" because it just doesn't matter any more to them.
