I think that the problem is that Zukie and the like expect too much leverage over the amount of money they provide. True, 100 mil sound like a lot - until you start comparing the amount to the actual annual local budgets. Things start looking even worse when you take the amount of time the changes are supposed to happen over, or if you look at outstanding debt.

 Effectively, Zukie tries to buy influence in matters typically resolved through local elections (or shareholder vote, if you like) as a consolidated minority shareholder. Sounds like some bad practices from the 80es to me.