A big part of the problem, in my humble opinion, is that government attorneys, for the most part, are made up of former District Attorneys or staff attorneys who have served in some administrative capacity. Government work is a pay cut for most private practice or corporate attorneys who are knowledgeable about real estate development, tax law or corporate transactions. They have no real expertise in negotiating the kinds of agreements they are asked to negotiate.
That's why, for instance, the whole "theme park" element of Destiny never got developed as part of their (second) thirty year tax break. The City's attorneys were not Bright enough to know what the minimum performance requirement was for Pyramid to be entitled to the tax benefits. Terrible negotiation on their part. I've seen it too many times.