Governments absolutely can. The updates to tzdata [1] are full of arbitrary changes happening all around the globe, not just for a few weird countries. The example I quoted above is 2007 changes to the United State's DST and a perfect example that governments can push time zone changes with at most marginal perceived benefits. Also remember that the current proposal to abolish leap seconds itself was primarily arosen due to computing complications anyway. Programmers can (indirectly) affect the future of leap seconds than probably any other group else.

[1] https://github.com/eggert/tz/blob/master/NEWS