Working under the direction of a grant agency. I know, I worked at two such institutes that managed $10m/yr grant money for planetary and biological science. In this case (NASA) the selection was done based on recommendations from a peer committee, but under directions from civil servants who had the final say, and there was a definite culture of favoritism for the prestigious closed journals. It was good for the institute too -- Science and Nature publications and associated PR raised our image in the eyes of our managers at HQ in Washington.

NIH too.