You can't write a specification that's completely unambiguous, combined with the fact that the agencies bill by the hour which creates an incentive for the agen

You can't write a specification that's completely unambiguous, combined with the fact that the agencies bill by the hour which creates an incentive for the agency (and their contractors) produce work products that meet the specification but that any logical programmer would avoid. This includes producing volumes of repetitive (and copied) code instead of careful refactoring, so not only does it cost more to get a functional product, but that product is far less maintainable.