it depends on who does what, if the people that want/need/use the code are responsible for writing it then I woudl agree, if you have a different department/wing/group writing the code then what you end up with may not be useable by the end user or may not be as useful anyway. If you add in another step where lots of disparate groups have input i.e. impse a set of requirements, usually indepdent of one another, then what you get left with is an expensive, unworkable, useless piece of spftware that everyone is forced to use until someone else decide to have a crack at improving it.

source: i have worked for govt.