Hm, okay. Was this a change from an earlier version of Perl? I seem to remember having to put a Makefile.PL at every level when I wrote an app in 5.005. And it works on my laptop, which tells me that this might not be the root of the problem.

However, removing lib/Makefile.PL did work -- sort of. At least it's installing something. It's now doing this for every module:

Installing /usr/local/apache/cgi-lib/policymaker/PolMaker-AutoQuote/RE
+ADME
Installing /usr/local/apache/cgi-lib/policymaker/PolMaker-AutoQuote/Ma
+kefile.PL
Installing /usr/local/apache/cgi-lib/policymaker/PolMaker-AutoQuote/pm
+_to_blib
Installing /usr/local/apache/cgi-lib/policymaker/PolMaker-AutoQuote/MA
+NIFEST
Installing /usr/local/apache/cgi-lib/policymaker/PolMaker-AutoQuote/Ma
+kefile
Installing /usr/local/apache/cgi-lib/policymaker/PolMaker-AutoQuote/Au
+toQuote.pm
Installing /usr/local/apache/cgi-lib/policymaker/PolMaker-AutoQuote/Ch
+anges
Installing /usr/local/apache/cgi-lib/policymaker/PolMaker-AutoQuote/t/
+02_test.t
Installing /usr/local/apache/cgi-lib/policymaker/PolMaker-AutoQuote/t/
+01_load.t
[download]

In other words, it's installing the entire directory. What it should be installing instead is

/usr/local/apache/cgi-lib/policymaker/PolMaker/AutoQuote.pm
[download]

... so I'm clearly still going wrong somewhere. Ideas?