Like all car manufacturers they are in a pickle of trying to predict where regulations will land. When the development and manufacture cycle is longer (years) than the regulatory cycle which feels like it changes every 12-18months you almost have to have well designed options on the shelf for each possibility. Combine that with managing the different desires of their key markets and it is really a challenging environment to navigate strategically.
When you don't know whether your customer will order chicken or steak, better have high quality options for both ready to go on short order and do so without going bankrupt on the one they do not choose.