Yes, but low-functioning bureaucracies are also the most prone to outsourcing. They can't manage to get anything done internally, so they hire outside orgs (hopefully higher functioning) to perform necessary basic services. Often late in the game, when (figuratively) a VIP visit could reveal that their bureaucracy is too broken to keep its office bathrooms clean.

In this case, that outsourcing could easily look like "call local ISP's, get connections, set up tunnel".