>There doesn’t seem to be any lesson-learning happening...

Which would indicate that creating jobs was not the actual reason for the grants. Given how trivially easy it would be fix the problem (simply make the grant contingent on the creation of jobs, otherwise it converts to a loan), the real purpose is probably a matter of generating headlines and raking in campaign contributions (with occasional full-on kickbacks probably happening as well). All of which it apparently does well enough that politicians continue to do it.