I need to go into this in more detail later as I need to run off to a meeting. But, I have found, more frequently than not, that project terms of reference seem to be designed based on premises that omit key issues.
An example is a project designed to streamline the activities of a government agency performing an important public service on the sole basis that all the problems rest with the target agency, when they do not.
Like computers, many government agencies can only work with what they are given. Garbage in...garbage out. Don't blame the computer. Designing interventions that only address a small part of the problem is worse than doing nothing at all. More later.