Given incompetence is systemic at most govt. agencies and big guys spend hundreds of thousands if not miillions on lobbyist, I'd be more inclined to believe we are simply stuck in the government paperwork bureacracy. Second choice would be some behind-the-scenes activity by a big player.
Third choice would be I3 is vaporware. If this was really all a scam, Dean would have cashed out long ago and instructed family and friends to do the same. It does not appear that has happened aside from the typical profit taking when it hit 1.95.
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