Anecdotally (from a government scientist), when hiring individuals for gov't work, if you know a good candidate, you write the job description for the candidate. This is because all hires (to avoid nepotism) go through a central office, which works with a checklist of qualifications from the job description.

It could be that when writing a RFQ that there is a similar method: one decides first what product/team you want, then write the RFQ to match that product/team. Not that that excuses the gov't just that it's a standard way to game the system.