A bureaucracy is a group of people communicating and working around a set of standards.  Its why your McDonalds burger is similar wherever you go.  It is also why we have clean air and water.  It is neither good or bad.  Communication, learning, and accountability can all be stressors.  You can work to improve the system, even then some will complain because problem solving effort is required in the change once they have one system down.

In time the bureaucracies get more efficient at enforcing and overseeing existing rules and the entities they govern get trained on what to do.  This can lead to decreasing funding for an agency and seeing not much immediate effect but it is the thought process and mentality that are important.  Crippling an enforcement agency can also lead to unpreparedness in a disaster and shortcuts gradually taken more and more by companies.