I agree with the first half of what you say, but I don't see why it necessarily means that someone like CIA/NSA is behind it. The approach described is quite standard in any company that likes to develop software in a sensible manner (as opposed to hacking a solution out). Having one team develop the framework while another develops the application/payload allows different people to focus on what they're good at and should result in a well-structured and reliable program.
I would say that the obvious desire for a professional development does indicate some level of organisation and a long-term aim, but you can find those features in many non-spook organisations.
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