Obviously you're operating under the assumption that "submitting" is a magic spell that compells some volunteer to act immediately, and therefore if it doesn't work, do it over and over again until it does. And you seem to think there's some editor hovering over that category, just waiting to be compelled -- if you could only find the magic lamp to rub, all would happen instantly. And you just can't understand how it could fail!
Reality is not that way. The submittal policy explains the most effective way to suggest a site. It's not a spell you have to repeat when it starts wearing off and the editor's own will begins to exert itself against you again! It's just a way of making sure that WHEN an editor wants to make a category more comprehensive, he can find the appropriate site you knew about. That's all. That's all it does. That's all it's supposed to do.
So what happens in reality? No hovering editor, certainly! Many editors, perhaps, COULD edit there. Several editors (including me) actually HAVE edited there at some point in the past. But ... do you imagine that I know, or anyone knowsk, what editor is working there at this moment, or which editor will work there next? NO! How could I, how could any human, possibly know that? You're demanding knowledge that simply doesn't exist in the human realm -- that is an absolutely certain way to be frustrated, and there is nothing any human being can do to help ... except to introduce you to reality.
The ODP theory goes, at some point an editor will either agree with you (that "the category is not as comprehensive as it could be") or at least think what you say is possible -- AND, at the same time, think that there is nothing in the world more important to do than to alleviate that deficiency. Your submittal has nothing to do with either of these decisions -- well, logically, it can't possibly, can it? Because thousands of categories have submittals, and most of those are spam, and everyone knows it. So the editor is going to decide based on something else -- ideally, by personal interest in the topic as a whole.
And at that point (which, so far as we know, hasn't happened yet for the category in question), the editor may look in many places (including the submittal pool) for sites. Of all the sites found, one has to be picked (more or less at random) to be reviewed first.
Now, I say, "more or less" random: the editor MIGHT choose to review submittals in order of "date submitted", in which case people trying the monthly resubmit will have done themselves harm -- harm that the submittal policy tried to protect them from. But then, the editor might have reviewed the sites in any other order (I always use alphabetical order, but I start at some random point to keep from being abused by the "AAA1 Abra Ace Jerkmeister" kind of manipulation.)
So, why is a good site not listed yet? Because it hasn't been reviewed. Why not reviewed yet? Random, as near as we can make it, and as near as no never mind really random. Because the internet is so complex, and spammers so prolific, that any conceivable rigid rule would eventually trap editors into seeing the same spam over and over again.