Bureaucracy is the addition of extra Drones because a faction has exceeded a certain number of bases. The bureaucracy formula works as follows:

Where:
Difficulty = Player's difficulty level (0 - 5)
Efficiency = Social Engineering Efficiency rating.
MapRoot = Sq. Root of # Map Squares / Sq. Root of 3200.

For each base a faction builds in excess of this number, one additional drone will appear at some base somewhere in the colony.