It is clear that they have not billed enough to break even internally, but have they saved/made more for other agencies to break even for the government overall

It is clear that they have not billed enough to break even internally, but have they saved/made more for other agencies to break even for the government overall? Presumably (maybe a bad presumption), agencies that use their services save more/make more than they are billed for. It would be a shame to kill a group that was saving money overall because they did not bill enough internally.