"Official" must be just and fair, whereas "civilian institutions" do not need to be.
The Life Bank was Lu Ping'an's core ability, and thus, Life investment became the main pathway... This profession must always adhere to concepts of mutual benefit, justice, and equality.
Just like the Central Bank of a country, not only must it act according to rules and regulations, but at its core, it does not pursue profits, but rather the financial and economic stability of the entire nation.
"...This thing doesn't make money, and even, many times, it must operate at a loss to gain attention."
Lu Ping'an's Life Bank provided many "Welfare Buildings," and the "tax" collected was automatically invested in the operating costs of the public account; creating new rule buildings often required additional investment.
This is also like the "Central Bank" in reality, which often operates at a loss, and its business indicators are not focused on profits.
