Your comment on lack of leadership is spot on. No one wants to be accountable. Instead HR departments put in place bureaucracy that works to deny individual fallibility in the name of a "system of human resource management". They want to treat people like a cog in a machine instead of as people.
That is American corporations in a nutshell. Outsource everything, put layers upon layers, and insulate yourself. Then when fecal matter hits the rotary you can put the blame on others and, at worst, you get fired and there's little to no worry about any sort of legal reprecussion because... well you weren't accountable for the problems in the first place!
It's a massive problem created from little cuts here and there with a few big lawsuits mixed in.
Until I saw hospital nursing, I had never seen a company run by HR.
Every decision starts and ends with HR. From hiring, to wages, to discipline and promotion, to IT and pay-roll, to reorganization and spending priorities, there is a rule for that. Maybe that rule originally came from the CEO or the CNO, but they say things like "may" and get interpreted as "shall" (or the manager faces a bad review and/or termination) or they are interpreted beyond any rational meaning. My best explanation is that it comes from a fear of litigation and a lack of leadership at the top. The final hilarious story is the CEO negotiating a big deal with lawyers and VPs shaking hands... and then saying without joking, "but I'll have to get HR's approval". The meeting wasn't important enough for HR to show up, but they had the last say.