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To see why choice C is credited, negate it. What if it were sometimes true that ideal bureaucracies were permanently without complaints falling outside their regulations? This would substantially weaken the conclusion. Choice E is not required because every ("any" in the answer choice) complaint doesn't have to meet this criteria. Negating it leaves open the possibility that some complaints do meet the stated criteria.

thank you for taking the time to help. negating absolutely makes sense.

mods will not like you posting a complete question. Prob best to delete it (in the future just post where the question can be found. It's a little harder to get an immediate response, but it avoids issues with LSAC).