I'd be surprised if the NSA has a clear purpose for bulk colliding SHA-1. It's a pretty niche thing to want to do even compared to say, "cracking" DES. For MD5 we know such government agencies made some collisions to exploit various technologies that didn't stop trusting MD5 in a timely fashion, but it wasn't something they did a lot just one collision here or there as necessary. e.g. https://en.wikipedia.org/wiki/Flame_(malware)
[0] Have not read the paper thoroughly enough to determine if this is true for this technique
As for FPGAs - forgive my ignorance - but can they even handle that kind of load? In my head I just see them breaking-down under the sheer thermal load.
They worked for Bitcoin before miners switched to ASICS; I imagine they'd be fine in this application as well.