Best interests of the 'state' or of the people?

The fact that HOA boards are corporate entities and not public bodies raises the question of “loyalty” or duties.  Do your representatives act in the best interest of their constituents, the people, or in the best interests of the state?  We know that, as a corporate entity, boards are required to act in the best interest of the HOA, the state, and not in the best interests of the people, the homeowners.Is there any real difference between the “state” and the “people”?  Is there any difference between the HOA and the homowners?  CAI and the courts argue yes, there is a difference.