Why Is It Sometimes Difficult for Top Officials to Motivate

Why is it sometimes difficult for top officials to motivate government employees to take action and make changes?

A) It is easy for employees to be fired under the merit system.
B) Decisions are made at the operating level and are not communicated upward.
C) Bureaucracies tend to change slowly and in an incremental fashion.
D) Adequate resources, experience, and structural support lead to lower employee morale.