Bureaucrats, there are too much of them almost everywhere so they could probably cut their own numbers. Instead they choose to cut the workers, which is why it is so hard to do anything about them and why we have too many of them everywhere.

Pretty much. And since they are seen as "better" or more "educated" than the actual workers they are most of the time paid much more, so even though technically there might be less of them, they cost quite a lot more to society, for providing "services" that very often have negative value.