I think I would look hard at the politicians.
Davis seems to have a loot of money coming in to his reelection campaign doesn't he!
I think that Gov Davis has come up with a political collary to this and that is that to get excessive amounts of campaign contributions, one needs to figure out a way to get lots and lots of money to flow through a government agency that one controls. I think that Davis is pretty crafty and not really focused on what is good for the general public, but hey he is a Democrat and by definition a modern Democrat doesn't really care about improving the lot of the electorate, they just want to be viewed and heard as caring. Words get more votes than actions, at least for democrats.