> I don’t mean policing and courts. Those are administrative and managerial functions.

Middle management is also an admininstrative and managerial function. Even in a best-case scenario, coördinating work among a huge amount of people within enterprises that are mostly run via command-and-control mechanisms and inside politics (as opposed to any self-regulating "market") obviously takes a whole lot of effort. That's really the natural job description for PHB's.