The bureaucracy of the Communist system is too easily seen as just a machine carrying out orders. ... Soviet bureaucracy was simply a co-opting of the previous Tsarist system. ...
Moving toward democracy from the right and the left
The State owns and controls the means of production and distribution.
It is a state-driven form of social engineering through economics.
So, the public administration is overtly politicized, and is rewarded for loyalty. As the system tolerates no opposition, they are also part of the “Control Structure”
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The fight against corruption is one of the biggest challenges facing former Communist states. (Georgia)Accountability
So, there may be an expectation that bureaucracy is, by its very nature, bad. That will be hard to overcome.