I'm not sure I'd go that far yet, but most certainly Jean can't be as oblivious and an unwitting tool as some might suggest he is. He's too smart for that. Still, there are a number of factions playing the same game, even the idiot prince who would simply get rid of the whole ACCA. Even from a more down to Earth point of view high officials will always do anything to keep themselves needed by the nation, even if it's not as outrageous as a coup. When bureaucracy gets old and strong enough, it starts to live for its own sake, not for the sake of the nation and the citizens.