So it's more about the beuraucracy than the tech?
So yeah, I would go for the bureaucracy.
Or to put it in another words: I guess that same guy (and his friends) are having a raging boner for such number of delays. They consider each and every delay an accomplishment. It's a fucked up attitude.
So I'll go with nobody caring. If one rogue welder can cause a project to fail then the safety systems are beyond deficient and the undercertified welder would be the least of their problems.
If this set a project back by 12 months then the inspectors were overzealous. There were probably other problems that set the project back and the bureaucrat didn't understand the situation.