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Every one of these agencies has a mission and a budget. To your or I, that budget might seem like "damn near infinite", but they still have constraints.

NSA has two missions. Everyone knows about SIGINT because of Snowden, but they also have a competing mission called COMINT.

You can, very loosely, map these two terms to "red team" and "blue team".

If NSA knew a top secret way to break ML-KEM and were fairly confident that no other country has thought of it, there is no way in hell the SIGINT people could get the COMINT people to agree on a plan to migrate the entire federal fucking government to use ML-KEM. It doesn't line up with their self-interest.