No plan of centralization has ever been adopted which did not result in bureaucracy, tyranny, inflexibility, reaction, and decline. Of all forms of government, those administered by bureaus are about the least satisfactory to an enlightened and progressive people. Being irresponsible they become autocratic. ... Unless bureaucracy is constantly resisted it breaks down representative government and overwhelms democracy. It ... sets up the pretense of having authority over everybody and being responsible to nobody. ...