Not necessarily, the government may do restitution. But when the individual distribution is not going to lead to meaningful recovery for anyone, it’s better for the government to add the money to their general fund rather than dole it out.
And to anticipate another issue, maybe the governments could have recovered more or even what the actual damages were, but lawsuits are expensive, even for the states and feds, and there a lot of issues that need attention. Trials are risky too. And in a lot of cases, there’s a legal max on the fine/recovery.
I just know the process and know what an uphill battle it is every time. There is so much damn fraud constantly.