The bureaucracy is necessarily hierarchical, first because of the iron law of the oligarchy and secondly because the bureaucracy grows adding more subordinate layers. As in the absence of a market there is no genuine proof of "merit" in government service to consumers, in a bureaucracy limited by rules, the hierarchy is often used as representative of merit. Increasing the hierarchy leads therefore to the promotion to the highest levels, while the expanded budgets take the form of multiplication of levels of ranks under you and expand your income and power. The bureaucratic growth takes place, therefore, multiplying the levels of the bureaucracy.
the compromise that they made was they kept a two house congress. The first house, the house of representatives would be based on the states population and the second house The Senate would represent the state.
