Traditionally, we've categorized requirements as "musts", "shoulds" and "frills". In theory, the musts had to be there to ship. But in reality, many of the musts didn't make it. And unless easy or sexy to the developers, you can forget about the shoulds and frills. So who decides which musts make it? In the absence of someone working with the teams to prioritize things to a finer level, it is determined by the order of attack of development. Those not done yet when things start to look bad get thrown out.