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One key characteristic of the merit system is that government employees are hired based on their skill and not because of their political connections. Prior to employment, workers must complete a test to see if their skills are adequate for the position.

The federal bureaucracy is very large and thus independent. Operating like a small city, there are specialized units within the bureaucracy. This allows the bureaucracy to be very independent because many people are specialists in their own respective areas.

Congress has its own unique way of dealing with agencies. Using appropriations, congress can either reward or punish an agency, thus controlling it. The courts can rule certain ways to control interest groups, but interest groups can fight back. Using their first amendment, interest groups try to do things that congress can't necessarily stop.

http://apcentral.collegeboard.com/apc/public/repository/ap10_us_govt_politics_q1.pdf