Why the Increase in Number of Administrators

That's a question answered in passing here:

Why are a larger and larger fraction of university staff full-time administrators? My
favorite theory is a ratchet model, which is a kind of evolution in which new administrative positions
arise to solve problems, but then the position remains even after the problem is resolved. In that view,
the answer to why we have so many administrators is that they solve problems we used to have.

 I think that works for me.  In my time at USDA I saw a fair number of activities and posts which didn't make much sense, except when you knew the history of them.  (i.e., if the deputy administrator is a politico and an idiot, give him an assistant to cover for him).   A similar logic was at work for rules/regulations: if an issue is raised for which the rulebook provides no answer, we don't feel comfortable considering the problem solved until we amend the rulebook to include our answer.  (Witness the oil blowout in the Gulf--we'll modify the rulebook to provide that drillers must have "top caps" on hand, plus other measures.  That's fine, but there's nothing in place to turn off the ratchet.)