Bureaucracy is the rule of no one. This is the case, not just only in government bureaurocy, but also in others, for example, in mercantile companies and in labour unions. Their members, even when they dissent from the policy pursed, habitually yield to the authorities they have set up. As they cannot secede without making enemies of their fellow workman, and often losing all chance of employment, they succumb. He who is firmly seated in authority soon learns to think security, and not progress, the highest lesson of statecraft.
True power is when one has autonomy and freedom of action.
It comes only to the individual who needs no one else, one who is independent. Given the definition of power there are rather few people in any bureaucratic organization who one can truly describe as powerful. As people advance upwards in an organization they become more powerful corresponding to their increased freedom, viz., fewer people to whom they need answer. Ultimate power comes when one has no one to whom they need answer.