Can someone explain it to me?
Look at the following map of the Lisbon Metro in the airport area. The dotted red line is what they are building now, all underground. The solid blue line shows what could have been built, all on the surface, since 1993 when the Campo Grande station was opened.

I’m not against the new line being built. I just want to know why we haven’t had a metro connection to the airport in the last 15 years for 10% of the cost of the line being built now, including the advantage of having a terminal 2 station too. Can someone explain it to me?
update: in a little more detail.