Previous testing I've done, has shown that a computer in a site, will be bound to this site for package server assignment. Thus if you have a site with a package server, a client is assigned through a subnet or whatnot, and the package server goes down, assuming the client is not covered by other site servers it will NOT get a codebase for new packages, and the NS will provide codebases for old packages to the defunct/unavaialble package server, as it still believes it's available to service packages.
In fact, if you create a site, add no site server, then add a client to this, previous testing show it getting no codebases.
I'll be honest and say, that I haven't tested this for a little while, so it could be functionality has changed. I can also add, that various people in- and outside of Symantec have different expectations of what is supposed to happen... The testing I performed however, showed you'd see the result you are seeing where clients will essentially be unable to download anything until the assigned site server comes back and can provide the expected download location for the issued codebases.
/Rasmus