It's government so that budget is paying for n levels of subcontractors subcontracting subcontractors, unions, oversight comittees to make sure the proper union

It's government so that budget is paying for n levels of subcontractors subcontracting subcontractors, unions, oversight comittees to make sure the proper unions were involved, layers of beurocrats who do some things but nobody is really sure,regulators to make sure the beurocrats were following governmental standards, and regulators to to regulate the beurocrat regulators. 86m on a government project breaks down to about 1-5m in development budget.