Though there is a lot of bureaucracy, you'd be surprised at how much work it is.
Consider how much a massive 'clean room' costs to operate.
Consider how much gear it takes to simulate the operation of massive robot arm in a 0G environment, when we live in a 1G environment.
Consider what happens when a 1 ton arm, attached to a 20 ton structure, applies toque to a 1/2 ton satellite... when the satellite is moving ...
Consider how much it costs to send 4 Engineers, a PM and a Bus Dev to Japan for three weeks for talks with Japanese Space Agency? Several times?
Consider the lawyers bill - Japanese, Canadian and American ones. Translators. Insurance estimates. Liabilities.
FYI - did you know that every single thing that goes into space is tracked? Every single screw had an ID number. It's original manufacturer, shipping, the date it was put on the station, by whom, when it was removed - etc etc. Every goddam screw :).
Now think of how much software and admin is needed to track all that.
And now consider that if one single manager, at one single subcontractor opens an 'issue report' anywhere in the world - that the 'countdown' for a shuttle launch was postponed? (Happened to my boss, opened a tiny change request on Admin Software in Toronto - went for lunch - Shuttle countdown froze, panic and hilarity ensue). And the overhead costs associated with that.
Space is expensive, especially 'manned space'.
Vert complex, one-of-a-kind system - where nothing is allowed to go wrong.