In any big organization, it's better to ask for forgiveness than for permission, meaning that it's better to build it first, prove that it works and then seek to establish it as a standard, than vice versa. And if there are multiple competing proposals, then competition is healthy.
Do all countries have the same commitment to privacy? No. Are all countries willing to work within the limitations imposed by Apple/Google? No. Disagreement is natural and it would be pretty stupid for everyone to stand still until an agreement is reached.
Besides, 20 million euro for a country like Germany is peanuts. All EU countries have spent far more than that during the lockdown.
It would actually be quite interesting to compare the different apps and their philosophies (privacy, security, centralization vs. decentralization, open vs. closed source, source code..).
Also, the app would have to be translated in many more languages. If you don’t want that to increase time to market, it will cost a lot of money.
I frequently find myself pondering this whenever my government announces yet another contract for (the admittedly decent) IT services for interacting with state entities.