Doing service design in government adds another layer of complexity
Much of what the government does is enable other parts of the government to function. The customer is internal to the organization. In service design, this is called the backstage.
There is no direct customer for building roads and bridges
There is no direct customer for creating policy.
Ideally, the value of everything the government does should be tied back to the voting constituents. When the true consumer of the outcome is lost it leads to the creation of red tape. One area is doing things because another area is requesting them. Without understanding the tie back to the constituent you never know if there is a more effective or innovative way of providing the value back to the constituent.