There is a significant difference between the amount of expenditure required to maintain and keep resources up to date over the long term, and the ability to spend. The fact that we haven't been able to spend the allocated funds stems from the fact that we haven't spent enough beforehand to obtain the personnel and institutions needed to spend the money.
So you have to build some capacity within the department. When budget cuts were made in the 1990s, which had the effect of reducing staff by 30%, it reduced the ministry's spending capacity at the same time.
So a policy was adopted that required accomplishing an awful lot of things, but the institutional capacity to spend the money on those things was not there. In a way, even not being able to spend money is a reflection of previous budget cuts.