That is not how I'm using the word. Governments are generally run by a small party of people who decide all the things - not the hundreds of thousands that actually carry out the day-to-day operations of the government.
Similar to how a board of directors runs the company even though all companies "are composed of" employees. Employees do as they are directed or they are fired.
Similar to how a board of directors runs the company even though all companies "are composed of" employees. Employees do as they are directed or they are fired.