Project National Health - policy driven IT

How can an IT project grow from 2.3 billion to over 12 and no-one question the manner by which the project is set up? I find it very odd that any country can engage in such a huge project in such a wasteful way. We know that government want to mitigate risk by risk transfer and that can only work if the company is sufficiently solid to bear the risk. At first sight this seems obvious and good business.