Given the choice between a fixed cost and an unbounded cost (being the capacity study referenced throughout the article) I'm not surprised they went with the fixed cost.
I'm not saying WV didn't get swindled, but I can sure see how this might have happened:
WV Rep: Do we really need these $20k routers for all our locations?
Cisco: We really couldn't say what your exact needs are without a proper study.
WV Rep: What will that cost?
Cisco: It's really hard to say. We'll have to visit all of your locations and speak with the IT Manager there. We'll have to measure average and peak load. Of course, we'll want to plan for future growth so we're not at this same point in two years...
The real crime is that they didn't open the RFP to multiple bidders. A little bit of competition can go a long way.