At the root of the problems of Greece and Italy is the fact that both countries have used public employment as a source of political patronage, leading to bloated and inefficient public services and ballooning budget deficits. Germany, as we saw in chapter 4, inherited an autonomous, merit-based, modern bureaucracy from absolutist times. Modernization of the state occurred prior to the arrival of full democratic participation. Political parties when they appeared were based on ideology and programmatic agendas; clientelism was never a source of political power. Greece and Italy, by contrast, did not develop modern bureaucracies before they became electoral democracies, and for much of their recent history used public employment as a means of mobilizing voters. The result has been a chronic inability to control public-sector employment and hence the wage bill up until the present day. Greece and Italy followed a sequence closer to that of the United States in the nineteenth century than to their Northern European counterparts: democracy arrived before the modern state, making the latter subservient to the interests of party politicians.