i misunderstood your post. The unit of winner is an individual - that seems pretty obvious in this context. Organizations don't act, only individuals.

What I was talking about (and what I thought you were asking) was the group of people you use to judge whether the game is zero sum or not, and that is... All parties who gain or lose in the transaction.

And if it is bad for the state then it is bad for the individuals...

Just no. If hurting the state helps one individual gain more power over the state, it can certainly benefit that individual.