I think the article is using software maintenance as a kind of inside-government term-of-art for the maintenance portion of a waterfall-style project. Undoubte

I think the article is using software maintenance as a kind of inside-government term-of-art for the maintenance portion of a waterfall-style project. Undoubtedly, the audience of this article is software developers and managers of software projects within governemnt. Therefore, although the title doesn't convey the article's message to outsiders, it might not actually be misleading.