Managers produced very thin, brittle glass. Government planners could not create incentives that would encourage managers to produce the type of glass consumers demanded. The incentive to produce profits is completely absent in the public sector. The lack of a profit motive means people in the government sector have different incentives. They are difficult to define.
Bureaucrats have various incentives such as job security, power, or prestige.
Because their incentive structure is murky, determining the motivation is difficult. In the private sector, entrepreneurs must hold costs down to remain competitive. In the public sector, incentives lead bureaucrats to provide their services at maximum cost. Bureaucrats, even with the best of intentions, naturally tend to assume that the size of their bureaus measured in money, staff and power, affects its ability to be effective. Thus, there is a natural tendency to maximize an agency's budget, staff and power to ensure agency effectiveness.