it seems to me that the reason is political patronage getting in the way of sense.
For instance the national roads authority originally wanted to simply take each bottle neck in the country a devise a local solution (bypass). Then the government upgraded all the suggested bypasses into motorways.
Unfortunately if the government wanted motorways in the first place the nra would have suggested a very different plan : 2 north south motorways (belfast waterford, and sligo cork) and one east west motorway (dublin limerick).
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