From what I remember nothing Graeber wrote suggests there wasn't a government. On the contrary, he wrote a lot of the temple being in charge of distribution.

Maybe there was a high priest in charge of weights and measures and punishing people who cheated with them, who knows - but we do know that for a very long time, that power if so wasn't leveraged into better living quarters, or better access to luxury goods that we know of. That's pretty remarkable.

So you can basically believe one of two things, or maybe some combination: that power was fairly evenly distributed, OR, those with power didn't appreciably privilege themselves. I find the latter harder to believe than the former.