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Bureaucrats work as regulators in two general ways:Decrease of Efficiency: As anyone who has worked with or worked in a bureaucracy will tell you, the creation of a bureaucracy decreases efficiency because it puts more people between a person and his objective. This increases the requisite "desire" level necessary for the benefit to be sought and therefore limits the amount of requests put into the system. This serves as a form of regulation without actually needing to create a law.For example, it costs a few hundred dollars to sue somebody in small claims court. Therefore, nobody will sue another individual for $10 in court since the very costs of engaging the system make it a greater loss than the bureaucratic cost to obtain justice. (Of course, this does not prevent $10 suits when the real motivation is not the money but some intangible benefit).Uniformity of Law: Bureaucracy is also very effective at enforcing standardization in how the law is applied. Bureaucracies can create complicated but replicable systems for dealing with various issues. It (theoretically) prevents individuals who are wealthier from just getting their way.For example, if a rich foreign national comes to the United States, he cannot just pay the governor of Arizona to become an American citizen. There is an immigration bureaucracy that he must deal with that determines whether or not he can become a United States citizen.
You are asking about nearly 200 years of government. Today there are more advisors for the president and more cabinet members. Education didn't have a cabinet position until 1989 and with each cabinet come people working for the member holding that office. The amount of people is not necessarily an indication of a overloaded bureaucracy, but many of these people are experts in their areas. Good example of this is the state department. Many people working for state have been eliminated, but these were people who had worked across many presidents to insure that the government could deal with other nations and foreign affairs/governments. They have years of background and needed insight that we now need desperately.
Policymaking institutions are the branches of government chargedwith taking action on political issues. The U.S. Constitution established three policymaking institutions - the Congress, the presidency, and the courts. Today the power of the bureaucracy is so great that most political scientists consider it a fourth policymaking institution.
An example is Eric Deaton and/or Ben Flranklin!
The Mayflower Compact was an example of a social contract.