The 'completely out of service' part is a quote from a relevant person (not the author), and it seems publications frequently try to use quotes in their titles, which could explain the phrasing. Based on the article, it could also be an intentional choice. It sounds like the hospital is still functioning in regards to some staff and patients are inside the hospital (and possibly can't leave), but it is completely out of service in the sense that the staff can't actually take care of the patients or accept new ones.