I’d argue that five federal bureaucrats actually do the work of negative two people. They create more work and chaos.
You could fire 5,000,000 of em and the impact would range to ‘never notice’ to actual improvement. And pick up $7B .
I am told it is not so different in most government departments. Two or three out of ten do the heavy lifting. The trick is to identify these or, at least, those who have the potential to become one of these keepers.