Go look up some of your own state's healthcare laws to see how bizarre they can get. Then think about how each state has organically arrived at their own set of bizarre and nebulous laws. Then imagine what the infrastructure built around those laws - adapted over time as they changed and ignored as much as possible - looks like.
People surprised at this number are judging a vast and complicated problem by the (relatively) simple and pretty face plastered on top of it. I'm actually kind of impressed that the number isn't higher.
This is really the only way I can imagine they got to that number.
Spring, a beastly enterprise Java codebase if ever there was one, is still "only" 460K lines of Java code according to cloc.
import java.languages.english.grammar;
import java.languages.parser;
import java.languages.conceptualunderstanding;
Java is also line verbose. The factory model also leads to not only long names for things but line verbosity in the form of multiple distinct instructions to accomplish something that in other languages might be a short one-liner.
if (identifiers.length > enough)
{
anyStatement.canPrettyMuch(takeUp)
.asManyActualLines(ofSource.asYouWant())
.theOnlyLimit.isYour(imagination)
.FactoryBean();
}Reusing code is not trivial, the design has to be good, the code needs to be easy to find and call. It becomes harder as the number of people increases.