For comparison, the German version cost millions, too. That included multi-language support, setting up help lines, security evaluation, load testing millions of concurrent users and, IIRC, connecting to quite a few of different hospital computer systems.
Add in time pressure, and costs go up. Germany did get a quality system, judging by what the spokesman for the Chaos Computer Club said (paraphrasing: ‘we have the unfamiliar problem that there is so little to complain about’. They never endorse stuff, so that’s about as endorsing as their statements can get)