I don't think that is about creating jobs. I am under impression the bureaucracy at the lower levels is required so that the customers will be discouraged to appeal to the management or dispute the level of service. If every simple and ordinary thing takes that much effort, how much effort would be required to do anything out of the ordinary? So, many people would just give up before starting, and others would give up in the process. I remember back in the USSR time it was customary for the seemingly caring bosses to hire very nasty office assistants. The caring boss would definitely take care of you if you'll be able to get past his office assistant.