Nail on the head. Always happens when they try to apply "open market" methodology to government controlled organisations. They're wrongly using "financial" yardsticks to measure performance etc by putting a price on everything, but the figures used are entirely artificial and you have a small army of people pushing money around, recording it, analysing it, reporting it, etc., but it's all artificial so completely pointless.
It's like the state controlled railways where there's a small army of admin staff charging between train operating companies and national rail, etc., when there are delays to "punish" the firm that caused the delay. Again, all entirely artificial, especially when national rail and some of the train operating companies are government owned/controlled, so again, just pushing money between different govt controlled bodies, recording it, analysing it, reporting, etc.
They really need to stop using "pretend" figures to measure performance. Financial performance figures works to evaluate performance, efficiency, etc out in the real world, in the open market, but it's just a pointless waste of time trying to play with pretend money (even if it's actually paid, it's still pretend in that the charges etc are manufactured in the artificial world, not real world). Just create performance targets etc based on actual performance and not pseudo cash.
All the different trusts are also arguing between themselves as to "whose budget" each treatment/service has to come out of, so you get GPs refusing to issue drugs requested by a hospital consultant claiming it should be the consultant who issues them and vice versa, same with blood tests - one dept won't do a blood test for another dept which is crazy as my OH has to go to two different places for his blood test to be done twice a month, yet it would save the NHS just to do it once and tick a few more boxes on the form - but because of fragmentation, neither dept wants to "pay" for tests for a different dept, so both depts end up "paying" - of course, if sanity prevailed, they'd come up with a compromise where OH alternated between depts month by month, but there's no "oversight" of common sense to let that kind of micro efficiency happen.