I am afraid even now many organizations are copying organization structructure that requires upgrading their departmental head from Managers to Directors. By so doing, a lot of manpower is required i.e. each directorate must have Personal Secretary, office attendant for serving tea, water, buying vouchers etc. Also under directors you might have a number of managers who are assisted by officers and clerks. In the Government's point of view the more employment created the more is the successful of Government BUT who pay these costs?
If you do a research you might find that in any public corporation, number of supporting employees are more than employees in core department line. Now do you expect employees in core department to produce enough to cater for core and non-core activities? - impossible.