I can understand this is a bit hard to follow.
The current roadmap is essentially a presentation of funding that was increased in the early 2000s and that, to a large degree, has been preserved. In many cases, it has been preserved by programs that that have been amended and improved over the more than 10 years these action plans have been in existence. The reality is that the roadmap's funding existed before the roadmap itself and has been maintained by the government, which has turned it into its roadmap.