A lot of top pages are run by Foreign Troll Farms. They are paying customers for Facebook advertising so Facebook refuses to ban them.
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Like, this seems unlikely. Given their business model (get cheap clicks from FB, sell for slightly more) it's vanishingly unlikely that these pages have a FB rep in any real sense, and even less likely that said reps have any pull within the company.
Now, if you'd said FB refuse to ban violating game advertisers, that would be a much more likely state of affairs.