A great coalition of smaller firms aimed to defeat patronage and create an acceptable, predictable, regulatory environment; in other words, a credible commitment mechanism was needed, and politicians could supply this. This confluence of monitoring problem, change in political parties, and demand for security led to demand for a merit system that would offer legal security via impartial public agents, and that was less vulnerable to political manipulation (Shepherd, 2003).

Public administration is made up of two levels. One level consists of the political directorates like cabinets, councils and advisory bodies. Members of the political directorate may be elected, co-opted, nominated by interested groups or selected by some other means. The political directorate may also include members from the military or civil services. The other level comprises permanent career officials and bureaucratic organizations. Civil servants are supposed to be selected on merit, and spend their whole careers in the civil...
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