What does the 16th amendment explain ?

an informal structure in a bureaucracy would be something like so-called "office politics". where there's a formal structure set up for the organization, but then an informal subculture as well that has a way of organizing the bureaucracy further. this can be positive because it sets up an added degree of organization, albeit informal, within the bureaucracy.

could you go a bit more in depth with you question? it's quite hard to understand. as soon as you do that i will be glad to : )