Not packaging CPAN is a mistake. It is the normal way of distributing program dependencies, even for programs that are not distributed via CPAN themselves.
Every program written in Perl that you would want to install manually comes with install instructions that includes using CPAN to get the required libraries installed. That's the culture and it has served well for the past fifteen years or so. The alternative would be to include all dependencies in all programs, which would be worse.
A system without CPAN would leave many beginning system administrators very confused on how to proceed and give Perl programs an unfounded reputation of being hard to install. There should at least be a stub installed that brings in the real stuff when called for or at least explains the situation.