Why are committee structures often superimposed over organizational structures?

One university had a great opportunity to establish an international healthcare campus in Asia. The host government had invited selected universities from around the world to create a global healthcare campus and would provide subsidies and loans for five years, which should be sufficient to attract an adequate number of students to become self-supporting. The satellite campus was to be both a training and a clinical site.
Who would be in charge of the satellite campus was a bit muddled.
A few years earlier, the university had established an office of global engagement to increase the school’s international presence. The VP of global affairs was a former dean and reported directly to the university president. At the same time, the vice president of the university’s health system was technically in charge of all healthcare provision. Both the global VP and the health system VP seemed to have responsibility for establishing this venture.