In government and business you can implement policy even if it doesn't align with your personal beliefs, it's called chain of command. No one cares if you're a true believer as long as the work gets done. How many churches will admit to functioning like that.
The Catholic Church from the year 0 to 1800 did lots of that. They had meetings to draft the Bible. What should be included. What should be excluded.
The cool Pope we have now is rolling back tons of rules because it's necessary for the survival of the institution, not because he necessarily thinks they're just. His opinion doesn't matter, only God's.
Now, replace "the church" with any centralized apparatus of power and you've described government.