It makes sense to have non-medical managers and administrators around, and there well be a need for more than there are currently. The object being to save clinical staff from wasting their time doing bureaucratic stuff. Basically it's the same principle as having people around who specialise in pushing trolleys, rather than relying on nurses and doctors to do that.

The trouble is when non-clinical staff get diverted into operating in a way that doesn't help things go more smoothly, but has the effect in practice of loading bureaucratic stuff back on the people doing the clinical work.

It's the same thing that is happening in all kind of fields of work - in education, in social work, in police work... And it happens in the private sector as well. It's the outcome of a deeply flawed managerial culture, and of people in positions of power (politicians and senior executives) who don't understand it, but have bought into it, largely because they are scared to admit they don't understand it. Emperor's new clothes.