http://www1.worldbank.org/publicsector/Reforming.pdf

It has become obvious in the 1990's that neither good policies nor good investments are likely to emerge and be sustainable in an environment with dysfunctional institutions and poor governance. It is clear that reforming public institutions is a complex and difficult task, both technically and politically. "First-generation" reforms, such as exchange rate unification and trade liberalization, could often be undertaken through the actions of a relatively small number of policymakers and public managers. Institutional reform typically involves fundamental changes in the "rules of the game" for a large number of civil servants and private citizens.