chuckk2

It's quite true that bureaucrats can put in place "rules" that have the effect of law. Often, they get them in place, and no one notices until there is public outcry.
At that point, it's up to congress and/or the courts to change things. As it stands, the bureaucrats have the edge in the court systems, and, to some extent, in congress as well.
Congress passes a law. The bureaucrats create "rules" or "regulations" that supposedly are to implement the law.
The rules and regulations can be used to do things that congress did not want to do, or did not specify.
The most often/common use is to restrict eligibility to some sort of federal program or benefit.