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My assumption is that someone, somewhere said "this is what RFPs have to look like." One of the things I've noticed is that large organizations, both private and public, are very bad at encouraging the right kind of risk-taking. If you're right, you may get some kind of reward out of it, but if you're wrong, you're pilloried. But no one ever gets canned for following accepted practice, and so many managers are content to coast their way up the seniority ladder while never rocking the boat or deviating from standard practice.