> If what the government asked made no sense, why did IBM agree to do it?
My understanding is that the government gave IBM a complete spec of what they believed were their pay grades. But that wasn't what was agreed upon with the employees and unions (how do you calculate overtime on a coast guard boat?). So it all made sense to IBM, they shipped it and fufilled every requirements. They had no way of knowing these weren't the "correct" pay rules.
It's the magic of government contracting: you write the spec and select the lowest bidder.
Forget a 0 to the total weight the bridge must carry? You'll get very cheap proposals. Ohh and there's typically rules against a bidder contacting the government to get more information; that could be considered as interfering with the bidding process. It's also why older USPS vehicules had poor snow performance.