I think some of the blame for lack of road care today has to be put on the NWS zone forecasts. There was a high probability of CAD holding longer than the GFS suggested, and was modeled fairly nicely on many commonly used systems such as Euro, Nam, and short range wise, the HRRR and 3K. The 1-3" forecasts and no WSW for places like York and Adams county were almost bound to fail from the moment the enter button was pressed sending them out. If they really wanted to make sure the public was safe they should have shot high on this one to let everyone know of the potential (likely potential in my eyes) of a borderline crippling snow. Penndot had to allow some of these less than scary forecasts to seep in their subconscious when planning crews.
Also the possibility of some places simply not having enough employees this early has to be considered. Here in Washington Twp they are advertising for people for the coming winter season so they do not have a full crew yet.