Yeah. It's more expensive if you let teams do 2-boat testing. Most countries are not big enough to have 2 defenders these days and the defender doesn't really want that anyway. But the problem is that the defender gets to race with no skin in the game.
I guess the idea was that if you restrict 2-boat testing, you kinda need to have some way for the defender to race against someone. But it swings the pendulum too far back the other way. Not really sure how to resolve it without obviating the cost cutting.
Although GD talks mostly about feelings, it seems like there must have been hard numbers that supported the choice. Barcelona likely hits more of the buttons a little better than the other options. Seems like a great choice. Not the only good one.