I would guess the project was (is?) running pretty much just as the people in charge wanted it to run. 10 years in and they were still billing -- more than ever -- for a project that would have completed 7-8 years previously if things had been done according to plan. All the seemingly massively stupid and counter productive decisions made make sense if the goal is to confuse matters to make it seem like progress has…
What did the demotivational poster say? Consultants don’t make money with solutions, they make money by prolonging the problem.
Of course, this becomes more expensive upfront as well, because the consultant takes on the risk. Hourly billing seems cheaper to the client, since they have to take on the risk instead.