You have 18 people voting in shadow gov with random folks in while leaving others out who represent the player base - and then you have the OFLs voting that isn't even binding as you need staff input - that can't work simple as.
If gov has 4 people and 3 busy IRL the 1 remaining guy gets complete control after staff input, as they should. They can then be pinged by you or ping to ask you to write stuff based on what was decided and approved in the real gov.