Who called bureaucrats as 'Ruling servants'?

Robert K. Merton described bureaucrats as "Ruling Servants" to highlight the unique paradox of modern bureaucracy. At first glance, these two words seem to contradict each other, but that is precisely the point Merton was making. In every modern government, bureaucrats are technically servants — hired, appointed, and paid to execute decisions made by elected representatives. But scratch the surface and you quickly realise that these very servants hold enormous power over how laws are interpreted, how policies are implemented, and how ordinary citizens experience government in their daily lives.

• Ruling Servants: A paradoxical term reflecting that bureaucrats serve officially yet rule practically through their control over administration
• Real Power: Bureaucrats decide how policies are applied on the ground, giving them power that often exceeds elected officials
• Merton's Broader Work: Also known for identifying bureaucratic dysfunction, trained incapacity, and goal displacement in organisations
• Others: F.M. Marx studied comparative bureaucracy, La Palombara worked on interest groups, Krygier on rule of law — none associated with this term