Not only does a bureaucracy tend to under-government in point of quality; it tends to over-government in point of quantity.
Walter BagehotThe apparent rulers of the English nation are like the most imposing personages of the a splendid procession; it is by them that the mob are influenced; it is they who the inspectors cheer. The real rulers are secreted in second hand carriages; no one cares for them or asks about them, but they are obeyed implicitly and unconsciously by reason of the splendour of those who eclipsed and preceded them.
Walter Bagehot