Mike, perhaps you are speaking of red tape, permitting road blocks placed on projects by various governmental bodies, and their ability to 'waive' certain money and time consuming process, if they have a community based plan of development that they are committed to for various community development and recreation reasons. I'm only guessing what you might mean.
But, it seems perfectly plausible and understandable to me that 'powers that be' in a region or community with permitting, zoning, and enviro oversight can be arbitrary. And, being restrictive and overly demanding of superficial planning documentations and such favors the big design houses, name GCA firms, and their big construction collaborators. The more oversight and documentation placed on permitting the project, obviously the more cost, and the larger the scale and scope. So, the mega millions GC development plans (which there are entirely too many of IMHO) build the big budgets, go after the big names in GCA and the whole over blown cycle is repeated.
Yes, I am aware of a few of the great efforts like Dan Hixon, yourself, Mike DeVries, and the sublist of fitters of design/ construction who float between various golf course designer entities. It is sad that there isn't more work given to these design/build entities by community and 'powers that be' decision makers in the development process. We would all as golfers benefit greatly.