no bottom no top
3.Another cause of our bureaucracy is that for a long time we have had no strict administrative rules and regulations and no system of personal responsibility from top to bottom in the leading bodies of our Party and government organizations and of our enterprises and institutions. We also lack strict and explicit terms of reference for each organization and post so that there are no rules to go by and most people are often unable to handle independently and responsibly the matters, big or small, which they should handle. They can only keep busy all day long making reports to higher levels, seeking instructions from them, writing comments on documents and passing them around. 
