They do? I mean obviously there are some great organizations out there that do build consistent contenders, but most do it by either A) spending a s*** ton of money on players, which isn't something all Owners can do (NYY, BOS, LA, etc.); or they manipulate the system, trade stars before they become too expensive and draft/trade/develop great (TB, OAK).
The Cardinals might be the only real example that fits your suggestion. They are often around the 10th highest payroll (although it's gone up to about 5 a few times) and often retain their good players.