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If you're sending them against a weaker Civ so the % chance is low, then that's a civ you can easily crush in other ways anyway, and also a civ with fewer places for a band to perform, thus fewer chances to exert those abilities. If you're sending them against an advanced civ, even with promotions the band has a high chance of going poof after a couple of uses.
In the end, it probably balances out.
Basically, in my last multiplayer game, I had 2 bands with the -50 loyalty promotion, one had +2 to wonders and entertainment districts, the other had +2 to water parks and theatre squares. I went to my main rivals capital and flipped it, and then the next city and so on. Each time there was a 9% chance of failure, which did happen eventually, but i'd basically wiped him out of the game by then due to 2 rock bands, not to mention the probable 100k tourism it generated against his civ.
This. Usually, your cultural rival is the quickest one to reach the policy card, thus severely narrowing your window of opportunity to make effective use of them.