During the two years leading up to the failed launch of HealthCare.gov in November 2013,

... HHS and CMS lacked leadership, which delayed key decisions and caused a general lack of clarity in the development of the Web portal, according to a report issued Feb. 23 by HHS's Office of Inspector General (OIG). Additional missteps included devoting too much time to policy, which left too limited time for developing the website. The report also contends that CMS officials failed to heed multiple warnings that the exchange's development was off track, according to the report. The report is based on interviews with 86 HHS and CMS employees and employees of contractors involved in the project. It also reviewed thousands of emails, contracts and internal documents.