Yes. In principle, the shareholders are the people to whom the profits flow.
If you follow the money, you discover it goes to government employee's unions, old people and various other special interests. They are the shareholders in government. Not ordinary citizens.
'Old people'? You mean citizens who paid taxes to finance social security and medicare for previous generations of retirees? Scandalous - how dare they.
Further, ask yourself who makes a profit on public service - the child who is poorly educated by a failing school, or the teacher who is overpaid to provide that service?
Old people are ordinary citizens and all ordinary citizens with either die early or become old people. Unions are also collective groups of ordinary citizens. Thus following the money leads to ordinary citizens.
I sympathise with your first sentence and mostly agree with it. The second is wrong, even if you don't understand it as it was meant, as government employee unions.
If you follow the money, you discover it goes to government employee's unions, old people and various other special interests. They are the shareholders in government. Not ordinary citizens.