theyが指しているのは？
In High-Tech Japan, the Fax Machines Roll Onと題する記事（The New York Times, February 13, 2013)に次の一節がありますが、節中にある「they」は、government officesとfaxesのどちらを受けているのでしょうか？ faxesを指していると思うのですが、ご教示頂けますならば幸いです。
In Japan, with the exception of the savviest Internet start-ups or internationally minded manufacturers, the fax remains an essential tool for doing business. Experts say government offices prefer faxes because 「they」 generate paperwork onto which bureaucrats can affix their stamps of approval, called hanko. Many companies say they still rely on faxes to create a paper trail of orders and shipments not left by ephemeral e-mail. Banks rely on faxes because, they say, customers are worried about the safety of their personal information on the Internet.
