My point is. The Republic of Ireland has a functioning system of Government, complete with Leaders, Ministers, MPs (or what ever they call them), and, of course, Civil Servants (again, with a pyramid of seniority).
At present NI also has a "Government" in the form of the barely functioning Assembly, plus Civil Servants etc etc. In the event of a merger, it seems inevitable to me, that some of these people at various levels will be "redundant", "surplus" (whatever, word you want to use).
There is no doubt a health service, again with "chiefs and Indians", and, a Police service, Fire Service...etc, likewise.... all of these people will no doubt wish to protect their own little bit.
Presumably, in the way these things usually go, when dealing with Politicians, and, Senior Civil Servants, no doubt the "mandarins" etc will be comfortably pensioned off, complete no doubt with honours. But, among the foot-soldiers there may not be so many "goodies" dished out. There is also, of course, the possibility that some Politicians and Mandarins LIKE being top-dogs (in their own eyes only perhaps), hence, my comment, "turkeys do not usually vote for Christmas".
It was an observation... I am sure it will be resolved by throwing an appropriate amount of money at the problem, the only real issue is.... whose money?