Processes are created. Then, people "game" the system to avoid the processes, which causes the creation of more processes that ensure that the system is "game-proof".
The second step is what causes the creation of almost all bureaucracy - by modifying the system to avoid the ability to game it (i.e. creating more controls), we embed within the system the idea of the original game. And, when this process has occured iteratively a few times, the system starts to become bloated and difficult to navigate because it incorporates steps that walk through all sorts of different "game avoidances".
This is why Lean is so successful: an iteration of Lean causes you to strip out the game avoidance steps and go back to the original process.