Yes, it’s the bureaucrats who make [things] happen. With some prodding and funding from outside.
Here’s a recounting at the federal level. As I’ve worked at the municipal (CCSF) and state (DOC) levels, I can say that the article below is relevant at pretty much any level of government.
On the other hand, there are strong charismatic agency leaders who clearly create a top-down culture. The successful, stronger leaders can really get government butts moving through personal charm and energy.
Every country, every level of government has its minions, the machinery who make governance possible. Enjoy the read.