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When a lot of people (citizens) have a lot of needs (licenses, taxes, property deeds, voting), a lot of people (bureaucrats) are needed to meet those needs. And since a lot of people (citizens) try to cheat and get extra stuff for their own benefit, the bureaucracy has to create rules to fence in the bad actors. The more people try to get around rules, the more rules are made, and the more rules are made, the harder it is for the citizens to understand the rules, so you need more bureaucrats to help navigate those rules.
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