Bureaucrats love to complicate things.
Which reminds me, Rod Whitman and I recently proposed to do some bunker work on an existing classic course owned by a municipality.
We have a crew that can carry out the work for less money than any golf architect/contractor combo that'll likely bid for the same job. And, of course, one of our selling points is that the quality of the work will be superior to that of others because either Rod and/or I will be on-site consistently throughout the project, rake and shovel in-hand.
Our proposed methodolgy is terribly confusing to the bureaucrats involved. They just can't understand how we can 'restore' the bunkers in question without a set of CAD drawings and a contractor for such comparatively little money.
Some of the same bureaucrats involved with the operation of this golf course have, in recent years, authorized millions of taxpayer dollars for architectural renderings and engineering services for a proposed ice hockey arena that now looks like it'll never be built!
And, of course, I'm sure that when we tell them, 'Yeah, we'll be restyling the bunkers personally,' they see as 'ditch diggers', not so-called 'golf course architects'! The architects aren't supposed to be toiling in the field!