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NASA hasn’t take the slightest risk since Challenger. They wouldn’t have accomplished 1/20th of the launch capability SpaceX has developed in the last 5 years.
Generally NASA doesn’t “develop” rockets per se, they commission rockets to specification.
It’s the specification process that’s the thing, nobody there would have gone out on a limb the way SpaceX has with their recovery systems. Look where they are on a shuttle replacement: the Apollo capsule with more room.
