Take agriculture - government administration today is a significant proportion of the total expense needed to do the job of growing crops and raising livestock. We have a few front line staff driving tractors and combines being inspected, administered, measured, monitored by an army of people - not so different to the Health Service. Each of these inspectors is there for a good reason, and have been added piecemeal in response to legislation.
The interesting question is - is this the fate other large organisations? Do supermarkets have an increasing army of back office staff - people checking that the people doing the work are doing it correctly? An army to supervise the suppliers, to deal with compliance in all its guises?