1) the brazenness. it was advertised
This makes me believe their claim that they did receive authorization, it at least that they believed they did.
2) They gave people without any criteria at all.
This certainly isn’t what their stated policy was. That having been said, in some cases it could be justified. From what I understand, once opened, all 10 doses need to be used right away, so if two people didn’t show up to their appointments, it’s better to give it to two young healthy people rather than discard them. They also found many vials contained an extra dose, so better to use it on someone available rather than throw it out.