Not sure why they would do that, but at my church there are a few kneelers that are very wobbly and rickety. They move all over the place if you try to use them as a kneeler. I’ve found myself in a couple of those spots and just flipped the broken kneeler up and knelt on the floor. It’s safer that way. And it isn’t any worse on your knees than a kneeler is if you distribute your weight properly and get down and get up properly (one leg at a time.) Kind of hard to flex your feet in shoes, though, and you have to do that to stay properly positioned over your knees. Hyperflexing your knees (putting your body weight back instead of forward) is much worse on your knee ligaments (overstretches them) than keeping your weight forward so that your body posture is straight.
Think of the churches that still have their communion rails in place, there weren’t any pads on the step where you kneeled, and I never heard of anyone blowing out a knee going to communion!
Our parish handyman recently retired and moved south, and while Father is a wonderful pastor and confessor, he isn’t very handy with church repairs, and so far, none of the handymen in our parish have stepped up to the plate and fixed these kneelers!