At least where I am, the HOA exists to serve the developer until X% of the land is built and sold. Until that time, the developer has <= 51% of the voting rights and the board is run by a third party. There is literally no way to vote for or against anything that isn't in the sole interest of the developer. The land deed restrictions are time based, so even when you finally can take over the board, you can't amend the restrictions without a majority vote of homeowners, not just people willing to vote. Bylaws are almost impossible to change in large communities and it's just as impossible to oust the third party from the board, for the same reasons

For what's it's worth, these are POAs until the developer has sold off most of the land. After that point, you can establish an HOA.