My guess is because it isn't textbook fraud. Everything is being done legally and by the book. But the money is still ending up in the pockets of friends by

My guess is because it isn't textbook fraud. Everything is being done legally and by the book. But the money is still ending up in the pockets of friends by making sure it's friends NGO's that know and meet the exact requirements. Afterwards, any investigation will find that a fair dispersement process was done, and this NGO just happened to hit every requirement perfectly whilst all others didn't meet some requirement.