Yes most often it is a government thing.
I could tell you how to do it right, make it nice, buttoned down, and a fully functional architecture that could be leveraged for many forms. This would give the most potential functionality and allow you to make the forms rapidly and easily with the least amount of stress.. but that would require some IT components.
If you can sell a VP or director on it and make a case for IT to give you a few resources then that is the way to go. It is not a cost issue but typically a political issue and who supports it etc.
If you want to struggle through "guerilla style" then you would take a different strategy.
Ideally the workflow and the data should be structured and secured at each point. If you are just emailing individual forms around and users are saving their own copies and the data is locked up in the forms it has the potential to be messy, but still might be better than what you currently have. Unfortunately, you will be missing a lot of the elements that can really make elecronic process great.
Data Connections are how you move data in and out of your form. So any secondary data, such as say Active Directory data which would identify each person who opens a form and provide their department, location, manager, etc, would be an example of a receive data connection. Submit data connections would be to store the form or its data into a database, SharePoint, email attachment, or File Location.
Go to tools and data connections. other spot you will want to check out is tools - form options.
If you keep the data in a backend database then you can have automatic web reports and analysis via Excel, which I know is a sweet thing to any budget geek. That is where you get your ROI.
If you would like to see a web demo of such a system send me an email.
Have fun and let me know how it goes.