Bureaucracies public and private appear—for whatever historical reasons—to be organized in such a way as to guarantee that a significant proportion of actors will not be able to perform their tasks as expected. It's in this sense that I've said one can fairly say that bureaucracies are utopian forms of organization. After all, is this not what we always say of utopians: that they have a naïve faith in the perfectibility of human nature and refuse to deal with humans as they actually are? Which is, are we not also told, what leads them to set impossible standards and then blame the individuals for not living up to them? But in fact all bureaucracies do this, insofar as they set demands they insist are reasonable, and then, on discovering that they are not reasonable (since a significant number of people will always be unable to perform as expected), conclude that the problem is not with the demands themselves but with the individual inadequacy of each particular human being who fails to live up to them.
found this an interesting take on administrative burden, which assumes that policy as written is intended to reflect a societal goal and that policy implementation puts (often intentional) friction preventing people and society from reaching those intended goals.