[fluoridation]

I would say the point of bureaucracy is to make the functioning of a system consistent with some set of rules. The preservation of those rules in some specific form does not have to be part of the rules, and so does not need to be a goal of a given bureaucracy. However, a self-preserving bureaucracy can arise, either by design or accident. I would say every government that has ever existed fits that description. Can you think of a single one that has not been fundamentally conservative? "Conservative" meaning seeking to maintain the status quo that allows it to exist in its present form at any given time.