Instead of having each new program adding to the upkeep of bureaucrats (for doing more work, etc) I think it would be better if, for most programs, the nation paid one lump sum to enact the programs - paying for new paperwork, manuals, advertisements, incentives, whatever. Only a very few programs should really add the bureaucratic upkeep- perhaps giving land grants, etc would add a constant upkeep to show the offering of lands.
Imo this is better for gameplay AND realism.
Imo this is better for gameplay AND realism.