[generalizations]

Anything can be called 4D chess if we add enough layers to the logic. I agree that what you're describing makes sense; but I think it's probably more in line with the bureaucratic mindset to observe this is the result of decades of kicking cans down the road.

[sepositus]

Yes, unlike the "player" in a 4x game, there's too much discontinuity in administrations between decades. Makes it very easy to kick the can down the road.