John Donahue at Harvard's Kennedy School points out that the norms of culture in Western civil services suit those who want to stay put but is bad for high achievers.
A Bill is a proposal for a new law, or to change an existing law, and comes from lots of places, like governing and opposition parties, public inquiries, civil servants or campaign groups.
It is no use inviting the politician or the professional or business man, who has been working or worrying about serious things for six days, to work or worry about trifling things at the weekend.