A malware hard to detect

Apparently it took millions to develop. And who has millions to spend on such a thing?
http://arstechnica.com/security/2016/08/researchers-crack-open-unusually-advanced-malware-that-hid-for-5-years/
Quoting:
"Because of the way the software was written, clues left behind by ProjectSauron in so-called software artifacts are unique to each of its targets. That means that clues collected from one infection don't help researchers uncover new infections. Unlike many malware operations that reuse servers, domain names, or IP addresses for command and control channels, the people behind ProjectSauron chose a different one for almost every target."


Report (PDF): https://securelist.com/files/2016/07/The-ProjectSauron-APT_research_KL.pdf