How could a $100,000 from a fund intended to support low income

Cape May - How could a $100,000 from a fund intended to support low income housing be paid out as bonuses to the highest level, highest paid city employees, when no disbursements have been made from this fund in years? Also, why were two separate bonus checks both under $10,000 issued? Is it just a coincidence that federal law requires a person to report cash transactions of more than $10,000. Furthermore, how could a city manager authorize bonus payments (including to himself) from a government sanctioned, benevolent fund without City Council approval. As a former auditor, I am very suspicious.