No two men agree completely. In any country where one man legitimately claims power from another he'll counter and alter the policies and plans of the last ruler. When a line of rulers do not countermand one another's orders but instead build upon them, so the periods of their rule function as an agenda staged without interruption, it should be suspected that none of these men were the end of the nations hierarchy. Their rules acting not to waste resources by cutting off mobilizations midway but to heap more material towards old projects and pass more extreme laws than before indicate these rulers are in collusion. At the least there's some faction in the land that a succession of bosses would rather serve than antagonize. At the most the land has been under 1 rule for some time and the new faces proclaimed president are a changing of the guard to hide the master.