Administrative Law and Independent Commission

In “Regulating Business and Independent Commission” Marver Bernstein highlights the lifecycle of organized groups.

Independent Commissions usually emerge after public outcries over poor management in state companies.

i) Gestation: in this period, interest groups react against a newly-established independent commission since it promotes a rearrangement of political power.

ii) Youth: regulated groups still enjoy better organization and influence than regulators.

iii) Maturity: regulator agency crystallizes its program but start protecting its own system against substantial internal change as it becomes part of the status quo.

iv) Old Age: independent commission presents a bureaucratic conduct and ethical problems.

In this context:
How does the government establish regulatory agencies which maintain their original direction?

http://journals.cambridge.org/action/displayAbstract?fromPage=online&aid=6357784