Bureaucratic inertia

Bureaucratic inertia is the supposed inevitable tendency of bureaucratic organizations to perpetuate the established procedures and modes, even if they are counterproductive and/or diametrically opposed to established organizational goals. This unchecked growth may continue independently of the organization's success or failure. Through bureaucratic inertia, organizations tend to take on a life of their own beyond their formal objectives.

Government
The United States Department of Agriculture has offices in almost all U.S. counties, even though only 14% of counties have valid farms or existing agricultural relevancy.