A few days ago there was a radio documentary where Adrian Goldberg talked about changes in the way councils do things. He said that councils employ far fewer people, their place was taken by volunteers and sub-contractors.
My experience is that volunteers and sub-contractors have problems with each other. Imagine volunteers planting up a bed with bulbs. In the spring they see the shoots coming through, they congratulate each other, then a sub-contractor comes along and strims the lot.
Your might say they wouldn't be so stupid as to do that. Oh yes they would. I've just had a herb I bought weeded from a raised bed by sub-contractors. They can't tell the difference between a plant and a weed. I've had a grapevine strimmed. Grass near a path is dying because they've sprayed the paths with weedkiller stupidly.
When I have spoken to sub-contractors before, they know nobody is going to tell them off. Councils and large landlords want cheap sub-contractors and just don't care. Why bother to volunteer?