Them. Unfortunately, a single person has very little ability to impact his or her government. That, combined with the observed fact that the goal of any government organization eventually becomes the perpetuation of that organization, is why the answer to your question cannot be "both".

Everyone is a single person, and yet almost everything we've ever accomplished has been collaborations.

> That, combined with the observed fact that the goal of any government organization eventually becomes the perpetuation of that organization

That may or may not be true, but regardless, it's then good that most developed countries have established a form of government where organizations within that government don't have complete autonomy and always answer to some form of elected representative of the people.