Management could have been classed as a "resource" but the lack of management is so important that it deserves a code of its own.
If there is good management then lack of resources is less of a problem. But if there is poor management lack of resources becomes an even bigger problem.

There are times when the senior management is excellent but there is a real lack at "sergeant " or NCO level. There may also be a lack at supervisory level.

Good management may be a matter of personality, education, experience and culture. Training can work wonders and it may be the lack of this which is easiest to put right.

It may, of course, be a situation in which there could be good managers but those who have got into power are not the good managers. They may be there for family reasons in a family firm. They may be there for political reasons, etc.

Code 4/2 does not always mean that good managers are not available, but only that they are not in position.