This one a bit special: most of the boat traffic through it are meant to be ferries so it is to be commissioned and managed by the National Road Authority. At the same time it's quite unique if only due to enormous cross-section and can't share many usual national design solutions for the tunnels. For instance my company was asked a quotation for a PA system for it and it's really a challenge. So it's no wonder that it's delayed so much: it requires a lot of bespoke solutions.
For example a train station doesn't just serve the current people who live there, but the new town and all the new buildings that will be built around it as well. Infrastructure improves land value often by many orders of magnitude more than it costs to build.