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).
Another feature of the bureaucratic structure tends to produce much the same result. Functionaries have the sense of a common destiny for all those who work together. They share the same interests, especially since there is relatively little competition in so far as promotion is in terms of seniority. In-group aggression is thus minimized and this arrangement is therefore conceived to be positively functional for the bureaucracy. However, the esprit de corps and informal social organization which typically develops in such situations often leads the personnel to defend their entrenched interests rather than to assist their clientele and elected higher officials. As President Lowell reports, if the bureaucrats believe that their status is not adequately recognized by an incoming elected official, detailed information will be withheld from him, leading him to errors for which he is held responsible. Or, if he seeks to dominate fully, and thus violates the sentiment of self-integrity of the bureaucrats, he may have documents brought to him in such numbers that he cannot manage to sign them all, let alone read them.