In the phantom tollbooth act 1 the lethargarians say milo is just like them milo asks the lethargarians what they do. one of them says: anything as long as its nothing and everything as long as it isn't anything what does this peice of dialogue tell you about

Where are the subjestions

An informal structure in a bureaucracy would be something like so-called "office politics". where there's a formal structure set up for the organization, but then an informal subculture as well that has a way of organizing the bureaucracy further. this can be positive because it sets up an added degree of organization, albeit informal, within the bureaucracy.