I had a similar conversation with a government customer, saying that they should pool their web applications into a single shared Azure Web App Service Plan, because then instead of a bunch of small "basic" plans they could get a "premium" plan and save money.

They rejected it because it's "too complex to do internal chargebacks" in a shared cluster model.

This is what I mean: The cloud is for orgs with one main application, like Netflix. It's not ready for enterprises where the biggest concern is internal bureaucracy.