This is spot on. I have worked as a consultant doing reviews of a handful of diverse government departments, and leadership's priorities were always identical:

This is spot on. I have worked as a consultant doing reviews of a handful of diverse government departments, and leadership's priorities were always identical: justify headcount increases. Every one will have a presentation about the changing nature of their work, new legislation, the decline in staff vs some past golden age etc etc that shows they need more people. As you say, its 100% a function of the incentives. This is a general flaw with "command" economies where resources are based on who can argue for them best as opposed to demand for the outputs. There is a lot that can be done in terms of SLAs for operational departments and discretion to the operational side on how money gets spent, to try and come closer to a market driven system, but there is no political will for it.