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).