There are so many factors in play here. Government issues a contract for scanning and loading all the paperwork. Contractor wins contract (prime), he then hires

There are so many factors in play here. Government issues a contract for scanning and loading all the paperwork. Contractor wins contract (prime), he then hires sub-contractors to do the their work, which in return can hire some other sub-contractor. If you think about it from a requirement perspective, government asks for apples, by the time those requirements get triaged three levels deep, they get oranges. Government attitude for a shitty product delivered, you can still make juice out of the fruit we got. They still keep pumping yearly, millions of dollars for that same minimal viable product.