Unfortunately, like most of government service, it is impossible to fire people, and managers are uncomfortable or unable to properly correct bad staff behavior. What this means is that mediocre or even actively terrible employees (I'm talking lazy, on Facebook all the time, or just plain incompetent), are left in the ranks, sucking up precious energy, resources, and morale. Sometimes these troublesome employees are shuffled around from group to group, because managers don't want to deal with them, until they are left in the position where they will do the least amount of damage. It is unfortunate because this generally leads to a lot of stress and decreased morale in the team because team members are left to pick up slack.