Like @NoRaAintAllBad said, pandemic-related budget shortfalls mean you have to prioritize -and the things that are in progress are priority items that already started. I’m not sure what Raleigh’s Parks and Rec is going through right now, but NCDOT had to suspend all projects if they haven’t already started (though COVID isn’t the only reason for that). The City’s already committed to Phase 1 projects, politically; it’s just a matter of figuring out funding shortfalls.
Besides, as much as I think Lake Wheeler walkability is also super-important, there’s another greenway that might deserve a higher place on the priority list from an equity point of view.