Entrenched Bureaucracies????? just what does that mean?

FEMA, Slow to the Rescue, Now Stumbles in Aid Effort - New York Times: "Admiral Allen, who was put in charge of the federal government's emergency operations along the Gulf Coast a week ago Friday, said entrenched bureaucracies hampered attempts to accelerate his top priorities: aid to residents, providing housing and clearing the vast swaths of wreckage from homes and trees damaged by the storm. "