In other words, when a project gets handed down from above to launch in, say, 3 months, there's no way in hell you can get the servers requisitioned, approved, and installed in that time. It became standard practice for each team to slightly over-request server capacity with each project and throwing the excess hosts into a rainy day pool, immediately available and repurposeable as required.
I know of a Social Security Administration acquisition back in the days of 100 MHz processors. The bureaucracy took so long with this, by the time the order could be put out to suppliers, 100 MHz processors were no longer available, so SSA ended up with a bunch of workstations that were 166 MHz processors down-clocked to 100 MHz. (Otherwise, they would have had to start the whole process over again.)