I think Disney continues operating RotR under such poor conditions because they've determined that - because it's a central reason people are visiting the park - guest satisfaction would be
lower if people couldn't ride it at all. Sooo... as
@marni1971 said, the underlying issue is lack of attractions (e.g., it wouldn't be
that big of a deal if it were down at Disneyland).
But they might not be taking into serious-enough consideration the consequences of first-timers riding it in poor conditions and then reporting back to friends/family "it wasn't that great, not worth booking a trip over..." That happen to a friend of mine, who went on it first the first time when it was operating poorly, and reported back to me "I don't see the big deal, it was okay..."
Also, excuse me if I missed this conversation, but... does anyone know why the ITS motion bases are shut off, and whether they'll be fixed? That's a huge loss, as I'm sure it makes the "flight" totally unrealistic/cheesy.