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Mutual funds are a systemic risk by being dumb money. Normally this is talked about in the context of index investing. The more money blindly tracks an index, the more that index becomes detached from reality. This causes measurable inefficiencies in the market [0]. In practice, this isn't that big of a deal, since "follow the index" essentially means "do what the smart money does", so the distortion is not that great.
In the context of voting, the analogous action would be abstaining (or voting with the majority of voting active shareholders). I suspect the reason this is not done is a combination of there not being enough active voting shareholders (as you say, that is why boards are a thing), and the risk of activist investors.
On a much smaller scale, we have something similar happening in my local HOA. The county owns about a dozen units as part of it's public housing program. Combined with the low turnout at HOA meetings, and the 1 property = 1 vote, this means that they could vote for essentially anything they want.
In practice, their policy is to show up to all meetings but abstain from votes unless they are needed to make a quarum. If they are needed, they vote for whatever the consensus was among every else there.
[0] See the index effect. Being added to an index increases a stock's value, despite there being no change to the underlying fundamentals.