Again, building a ship and modifying it is apples and oranges. And that extends to delays, which are really rather common especially with upgrades and mods, as you run into certain issues only when you do this, unless it is a repeat mod of a preceding effort (which Kaga is not).
And comparing construction times between countries too has dramatic caveats. Yes, Japan built Kaga in 20 months. That doesnt mean they couldnt have built her more quickly. This is mostly a function of how many hulls a yard builds and how the government in question wants to achieve a sustained build rate. Japan practices continuous shipbuilding for naval efforts, but puts out quite a lower number of total hulls as required for their navy. The time taken is a function of this, not the other way around.
Well yes, one is an LHA/D and the other is a DDH-turned-CV. The point is not so much like vs like as how one country utilises its yard time and resources in contrast to how other countries would utilise theirs. A delay is a delay regardless of whether you are building a ship or modifying one. In either case it happens, of course, due to the occurrence of the unforeseen as unmitigated without allotting additional time (and resources) despite prior planning.
Whether it's a repeat mod or not is as irrelevant as saying "you run into issues only when you do this", which, as reasonable as it may sound or as "common" as it may be (for a grand total of
one example in this case), doesn't excuse the fact that it is a result of inadequate foresight and/or planning, particularly in the context of spending as much time to modify a ship as it would take to build one from the keel up, and taking as much time to remedy it as it would take a neighbouring nation to build a flattop twice the size. To add, the modification isn't entirely complete at this stage either, as more work is yet required on the interior of the Kaga in the next few years still.
So all that just leads to the questions of the efficiency and by extension the efficacy of modifying the Izumos in the first place as opposed to building new bespoke ones that can operate fixed-wing aviation natively; and how willing one would then rationalise the time the Kaga had already spent in the yard was still a "function of the requirement of the navy/continuous naval shipbuilding", esp. in light of the obvious original expectation that a modification would have been more expeditious than building new hulls, when in reality it was anything but.
Also, I wouldn't necessarily say the time it took to build the Kaga doesn't mean they couldn't have built her more quickly, since we wouldn't know without follow-on hulls. In fact, Kaga took longer to build than the Izumo (20 months vs 18 months). So how much more quickly would you reckon they can build one now, when the requirement, hence the judgment, is such that they would sooner possess fixed-wing capability by modifying existing hulls than building new ones, when both approaches apparently take the same time?
That all said, though, I wouldn't dismiss that when it comes time for Izumo's modification it might turn out to be a smoother process. It remains to be seen.