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It's pretty easy to stall out on the ground, even with liberal interpretation of "progress". Plus, there is no requirement to do ground work in Judo competition, it's optional. The athlete has to decide on an ongoing basis if it's worth the energy burned to attack a determined defender on the ground, and that depends on time on the clock, score, etc., etc. Which is why transitional attacks are so important.
This. If one of the part after the scramble get a strong defensive position, it will cost lots of energy to initiate an attack in newaza, with limited possibilities of sucess, so why waste the energy? So its not just rules but also tactical dispositions in play from the competitors.