אין ספק שהמשחק מצריך הרבה ממי שמריץ אותו, כי יש הרבה דברים שאין כל כך חוקים, או אפילו קווי הנחייה.
When someone tries to make a trade negotiation, you do not always pay up front the entire amount, but instead you promise them the rest of the payment after you sold it, as well as a chunk of the profits. Bureaucracy rolls come into play when negotiating that. This is abstracted, and up to each ST to run with as he sees fit.
But bureaucracy is also useful when you want to find official documents from a city/nation/court. Or to get a permit for your business, or the mercenary group you or your dawn friend wants to start.
Bureaucracy is also about negotiating deals between cities/nations/organizations. Because there's laws that need to be drafted, and people who need to monitor how the treaty's implementation is going. This type of thing might not come up in every game, especially not at the beginning of a Celestial game, but it's still there as part of the game.