The bureaucrat's official life is planned for him in terms
of a graded career, through the organizational devices of promotion by
seniority, pensions, incremental salaries, etc., all of which are designed
to provide incentives for disciplined action and conformity to the official
regulations. The official is tacitly expected to and largely does
adapt his thoughts, feelings and actions to the prospect of this career.
But these very devices which increase the probability of conformance also
lead to an over-concern with strict adherence to regulations which induces
timidity, conservatism, and technicism. Displacement of sentiments
from goals onto means is fostered by the tremendous symbolic significance
of the means (rules) (1968, pp. 254-255).