For manned spaceflight, I'd say it already has. NASA itself has launched a grand total of one manned flight since July 2011. China has launched 14 and SpaceX has launched 20. Worse, the NASA vehicle is completely unsustainable. It was obsolete before it ever flew and it's so expensive that the mission launched yesterday likely costs more than the entire R&D cost of SpaceX's rocket and capsule. Probably China's too.

The problem is that the purpose of NASA's manned spaceflight program isn't to explore space. It's to make the President look good (and I'm not just talking about the current one here) and funnel money to contractors. In that respect it's doing quite well.