Public administrations as corrupt welfare systems

Why is it harder in some countries to cut back on their administrative bodies, normally in multiple layers, than on other public services that, at least at first sight, seem at least as important - say, education or health care? I believe these administrations historically have a different function. While the authoritarian dictatorships of Southern Europe failed to build welfare states, they did create corrupt substitutes through the control, assignment and withdrawal of civil servant positions. Now that Southern European democracies still have very limited social systems, political parties continue to rely on handing out public jobs to their supporters.

This is a corrupt alternative for the northern welfare states, and with no democratic protection against poverty in place, it is hard to see how this vicious circle of clientelism can be broken.