..is that
They are doing it because they WANT TO and not because they need to.
I literally dropped my jaw last night...
when I saw 6-8 settlers in the Santuary run straight into workbench and take out 2 legendary weapons each... when the place was being attacked by two Giant Radscorpions.
All these settlers were heavily equipped with ammo, weapon and armors.
.. but it did not stop them running to the workbench straight to take out two weapons of their ammo type.
I knew this happens and many people suffer from it... but I never knew it was this bad.
I believe this AI needs to be adjusted.