About 2 councils worth of scouts. Look at all that administrative bloat. That's easily 1.6 million more for program if they merge down to 2 councils and fire 8 scout executives.
It is dying. And the majority of folks do not want to put quality control measures. They want 'High Speed, Low Drag" advancement and increasing the number of Eagle Scouts. They would rather celebrate the 13 or 14 year old with all 130+MBs than the troop that is doing trail work on the AT, or the troop running Red Cross evac stations.