This paper addresses the question of the underlying causes for persistent parallel structures in public administration. Frames like bounded rationality, the budget-maximizing bureaucrat and the political theory of hegemony are examined with respect to the possible provision of explanations for the persistence of parallel administrations. A combination of content analysis and objective hermeneutics is then applied for a case study of parallel administration in Switzerland. A model linking the three approaches is finally developed to show how parallel administration relies on an equilibrium in the struggle for budget and hegemony between the key actors and on ignorance among fringe actors.