Aussie, I would not assume anything sinister....let me explain this behaviour as it was once explained to me:
A mid-level govt functionary put it this way: I am responsible for "Line 14a of form 342 for my ministry. I have two boys. Since it is my duty to provide for their employment when they are older, I will do everthing I can to see that Line 14a is split into two sub-parts- one for each of my boys to administer."
And just look at how raising something to the power of two repeatedly very soon results in a massive expansion from even the smallest of beginnings.
It's like that old question about a grand prize in a contest where the winner has the option of walking away with $1,000,000 right now, or he can take 2 cents today, 4 cents tomorrow, 8 cents the next day, and so on for a period of 30 days.
Work it out: With the second option by day #30 he would have accrued over $20 million!