"We have bureaucratic layers that are stuffed," Mr. Levin said.

His job will impose another bureaucratic layer on top of the health agencies.

The bureaucratic layers not only waste money, they slow the development of new arms to a snail's pace.

"I don't see us as another bureaucratic layer at all," he said.

"The agency has become bogged down in too many bureaucratic layers, andmanagement seemed to feel no urgency for change."

But an added bureaucratic layer could slow decision-making.

"Why is the president adding yet another bureaucratic layer?"

It adds an unnecessary bureaucratic layer and, as envisioned, could encourage schools not to provide services like special education.

Instead of giving the farmers more independence, Brezhnev announced the establishment of two new bureaucratic layers.

"Not to imply inefficiency in another place, but a bureaucratic layer is obviated," he said diplomatically.