UK spends billions on high-tech IDs, forgets to buy card readers
crunchgear.com
crunchgear.com
Deferring deployment of the readers until a reasonable size population cards is a reasonable step to take.
Leaving the readers out of the budget so that the project looks cheaper than it is, is a dirty trick that frequently gets done. I saw it done for some of the projects related to the public office I ran for, and this was part of why I ran.
But this is even worse than that - the folks who would be making the readers aren't even making them.