Federal dollars are like air to an agency: It will expand to fill the space provided. If you give an agengy money, they will spent it irregardless of whether or not it is prudent to do so. This is where we got to in the DoD. Congress showered the department with procurement dollars in the 90s, ergo we went from a $15 million fighter (F-15) to a $180 million aircraft (F-35). Some of this is due to the power of the iron triangle (business, DoD, congress).