In public sector delivery, the most consequential technical decisions are frequently made during procurement, by people writing a specification that must be fair, comparable between bidders and defensible under challenge. Those constraints reward precise up-front specification — which locks in a solution shape before anyone has learned what the problem is.
The resulting contract then makes changing that shape expensive, so programmes proceed toward a design that was fixed at the point of least knowledge. This is not a failure of the people involved; it is what the procurement framework selects for.