Well, I suppose that all rulers be they kings, presidents, or dictators are slaves to bureacracy, depending on the country, the era, and the amount of control they have over the goverment. As an autocrat, dealing with an inefficient goverment that was wracked by pressures, challenges, and changes, and a rather out moded system, there was obviously going to be issues with the bureacracy. I have heard this before, and I think the bureaucracy of that time in Russia was indeed like that. So I would judge the last Romanov rulers did become victims of this. If they had reorganized the system, perhaps they would not have been.