The Pareto principle states that for many outcomes, roughly 80% of consequences come from 20% of causes (the "vital few").They can't all be doing nothing all day ...or can they?
The public service self select people who aren't "high performers" at a much higher rate. This then leads to institutional culture. But yes the entire public service will be being maintained by the 20%. I mean HR managers & cultural advisors dont really produce much now do they?