I think maesters do a lot of it, and certainly we have examples of educated septons who have positions at court, so there’s that too.
And a lot of it is done by people learning on the job, as it always is.
In our own world much of the administrative work was done by learned men of the church or educated men from universities schooled in law and other matters. Maesters can surely only do so much themselves. so who fills the giant void as far as administrative matters go in your mind? we don’t here of clerics or lawyer sorts.
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