IP and Optical domains?

HI, I was reading the following article: http://www.lightreading.com/optical/sedona-boasts-multilayer-network-orchest... It says that "The IP layer and optical layer are run like two separate kingdoms," Wellingstein says. "Two separate kings manage the IP and optical networks. There is barely any resource alignment between them. The result of this is that the networks are heavily underutilized," or, from an alternative perspective, "they are heavily over-provisioned." Can somebody shed more light on what it means to say that the IP and optical layers are run as independent kingdoms and why do ISPs need to over-provision? Thanks, Glen