Sometimes, one looks at a situation and one sees that there are 'factors" which blind decision makers to the obvious. EXAMPLE? Meeting budget goals for your particular department, so you want another department to pay for a process or an action that 'might" put you over your target end of year goal and make you look bad at the end of the fiscal year when you are audited.
Let us say you are a rear admiral of the United States navy and you come in and your torpedo arsenal comes to you because you are Bu-ord actual and they want to test a new torpedo they developed.
Rear Admiral
Harold Rainsford Stark, 1934–1937
but when you ask your colleague at Bu-ships,
Rear Admiral Emory S. Land ,1933-1937
to borrow an obsolete cruiser or two as a test target, He wants you to pay for the scrap value for the loss of the cruisers so it does not impact HIS bureau's budget. The money is there for weapon proof spending in the overall navy budget, but someone has to spend it for purpose by the bureau, and whoever spends it will not look as good at the end of the fiscal year to Congress when he presents how much he saved the American taxpayers by his "astute management" of the taxpayers' money to Congress as the other bureau chiefs. So both admirals lock horns and fight over who eats the weenie and looks "bad", and after the fight they compromise on a submarine and 1 test series of 2 war-shots on that goddamned torpedo.
50% failure rate in the weapon, but both admirals "look good" on paper to Congress, when budget time rolls around and the bureaus' books are audited.
Who cares about the torpedo?
Now apply THAT over to the US Army and its bureaus and commands DOWN TO THE PRESENT.