There are a number of reasons why Telstra may have submitted a "sub-standard" NBN proposal. If you owned a business, but feared that the govt may legislate to split your business up, and having approached the govt on this, and having received no reply, your position would be made almost impossible. This is what in fact happend and has been pushed into the background. How could the business prepare an adequate proposal to build the NBN when so much uncertainty existed. My belief is that the govt wanted to step on Telstra very early in the peace.
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