Inexplicable City Development Policy

OK, I'll admit it. I can't make heads or tails of Racine's approach to development. Some folks (Tom Toussis, Brent Oglesby etc...) have to go through an often contentious process that requires approval by the Racine Development Authority and, I think, approval by the full city council. Others get land and tax breaks after behind the scene decisions, then pose for photo shoots with the mayor. Is there a coherent city policy that can explain this seemingly haphazard approach to development? Greg Helding, I know you are out there, can you explain? Thanks.