The Inertia of Big Government and Big Corporations
Too often, when a contract comes up for renewal, large organisations opt for the old route with the same supplier.
Look at OpenOffice - only the cash-strapped or more adventurous even considered it. I was in a meeting once where the MS sales rep even suggested that open source software was written by 'amateurs' which was why it was either free or low-cost.
I suggested 'amateurs' were at the forefront of technology, such as the radio amateurs.
Likely the government purchasing agent for the DOI was buddy-buddy with his supplier rep who might have even prepared a draft sales order, which frequently happens, ensuring that only one company - his - can fulfil the order.
Google did well in having the order re-opened. May the best product win.