Smoothly operated, not beginning to see bureaucracy (3,4)

I believe the answer is:

red tape

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'bureaucracy' is the definition.
(I've seen this before)

I can't explain the remainder of the clue.

(Other definitions for red tape that I've seen before include "legal agreement?" , "Petty official procedures" , "Irritating bureaucracy" , "bureaucratic snarl-up?" , "Excessive bureaucracy (3.4)" .)

I've seen this clue in The Everyman puzzle in The Observer.

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