Public institutions present themselves as structured organizations governed by formal roles, written mandates, and clearly defined chains of command. In practice, however, much of the real decision-making power operates through an unofficial hierarchy—one that rarely appears on organizational charts but strongly influences outcomes.
Understanding this hidden structure is often the difference between a stalled request and a resolved one.
Formal Charts vs. Real Power
Official hierarchies describe who reports to whom. Unofficial hierarchies determine who actually decides.
In many institutions:
- Authority is concentrated in specific individuals, not roles
- Seniority outweighs formal responsibility
- Experience within the system matters more than legal mandate
A clerk may legally be competent to decide but will defer informally to someone else.
The Role of the “Gatekeeper”
Unofficial hierarchies often rely on gatekeepers: individuals who do not formally decide but control access to those who do.
Gatekeepers:
- Filter which cases move forward
- Decide which issues deserve attention
- Protect higher levels from exposure
They rarely say “no” outright. Instead, they delay, redirect, or discourage.
Why Escalation Sometimes Hits a Wall
Citizens often assume that escalating to a higher formal level guarantees progress. When escalation fails, it is usually because it bypasses the unofficial hierarchy.
If escalation:
- Targets the wrong role
- Ignores informal authority
- Disrupts internal balance
the system responds defensively, not constructively.
Informal Authority Is Earned, Not Assigned
Unofficial power is typically held by:
- Long-tenured staff
- Individuals trusted by management
- Those who understand procedural loopholes
These actors shape outcomes quietly. Others, even with higher formal titles, may avoid contradicting them.
Why Citizens Are Never Told About This
Unofficial hierarchies cannot be acknowledged openly:
- They contradict formal legality
- They undermine transparency
- They expose accountability gaps
As a result, citizens are expected to discover them through trial and error.
How the Unofficial Hierarchy Shapes Your Experience
This hidden structure explains why:
- Similar cases receive different outcomes
- “Talking to the right person” matters
- Some requests move instantly while others stagnate
What looks like arbitrariness is often informal alignment.
The Cost of Ignoring the Hidden Structure
When citizens interact only with the formal hierarchy:
- Requests may circulate endlessly
- Responsibility is constantly deferred
- Decisions are postponed without refusal
The system remains internally coherent while the citizen bears the cost.
What This Means for You
Recognizing the unofficial hierarchy does not mean accepting it—but it allows you to navigate the system more realistically.
Effective strategies often involve:
- Identifying where decisions truly occur
- Framing requests to reduce perceived risk
- Avoiding unnecessary disruption of informal balances
Related reading
This article is part of a broader guide on how Romanian authorities actually work; each of the linked articles below explores one of these mechanisms in detail.