But often, she says, the resulting reforms have been cosmetic--a token low-level bureaucrat assigned to hear problems, with no forum to do anything about them.
Low-level bureaucrats are frustrated by their lack of power to make needed reforms.
mnli hypothesis: Low-level bureaucrats are frustrated by their lack of power to make needed reforms. premise: But often, she says, the resulting reforms have been cosmetic--a token low-level bureaucrat assigned to hear problems, with no forum to do anything about them.