We have come to suspect the latter type because they can be perverted to do or appear to do what doesn't make any difference. In a fairly well integrated system, people do not twist it but apply their intelligence to the ends of the system because it makes sense to their own interests and views. They went down immediately. Apparently because, when no such responsible, intelligent expenditure could be made it appeared to an intelligent employee that they should request more than they needed and hoard scarce and potentially needed resources. When they could order as required, they used up their hoards and spent only as required in the moment.
Intelligence is the underlying organisational principle of the universe.