Growth of state functions with the expansion of the economy has
resulted in the creation of a vast state bureaucratic apparatus. Heading
this bureaucracy are the ministers of state, each with a separate
department. Under the department heads are sub-departments, sub-divided
in their turn into bureaus or separate offices. At each level, functions
are assigned and salaries are fixed. Entrance into this anthill is
sometimes by personal favor, sometimes by examination. Once in, however,
barring misbehavior, or some catastrophe like the abolition of a
particular bureau, the office holder is in for life with a pension when
he is retired for age.
Inside the bureaucracy there is a slow movement determined by seniority.
There is also some skipping, as when new bureaus are formed or when
death or retirement offer opportunities for the favored few to move
forward or skip upward. As we read the record, the bureaucracy existed
in the days of Egypt's Amenhotep, or in those of Rome's Augustus Caesar,
as it exists today--locally in every municipality, province, nation and
empire and generally throughout western civilization.
Every civilization known to history has had its priestcraft as well as
its statecraft. Statecraft spawned its bureaucracy. Priestcraft spawned
its theocracy. Both patterns have inter-penetrated entire civilizations.
Each locality, region and district has had its representatives of state
and of church.
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