World leaders are not invited to meetings like Bilderberg to discuss or debate policy. There is very little discussion or debate at these meetings when it comes to the agenda. Global marching orders, which are decided elsewhere, are presented and the only discussion that is had is focused on implementation. Agenda is set by unseen global governance, but implementation is left the loyal visible leaders that are placed in positions of power and authority by the global system.
The unseen global elite set the policy and agenda (governance), and their loyal visible leaders implement that policy and agenda (government).