Existing studies on the bureaucracy have not dealt with organization structure or transmission of information clearly. In this paper we build a model for the Bureaucrats' Behavior on the basisof game theory. We focus on Herd Behavior of bureaucrats which depends on the probability of their ability or transmission of information change, bureaucrats mimic the decision of other bureaucrats, ignoring even when they privately catch what citizens really needs information. To eliminate Herd Behavior of bureaucrats, we must reduce the risk of their information. We propose that the principal of document must be thoroughgoing, or doing the cost benefit analysis obligatory bureaucrats' information.