Robert Graves
"The Use and Abuse of Official English"

Ch. 4:

The official style is at once humble, polite, curt and disagreeable: it derives partly from that used in Byzantine times by the eunuch slave-secretariat, writing stiffly in the name of His Sacred Majesty, whose confidence they enjoyed, to their fellow-slaves outside the palace precincts — for the Emperor had summary power over everyone; and partly from the style used by the cleric-bureaucracy of the Middle Ages, writing stiffly in the name of the feudal lords to their serfs and, though cautious of offending their employers, protected from injury by being servants of the Church, not of the Crown, and so subject to canon, not feudal, law. The official style of civil servants, so far as it recalls its Byzantine derivation, is written by slaves to fellow-slaves of a fictitious tyrant; and, so far as it recalls its mediaeval derivation, is written by members of a quasi-ecclesiastical body, on behalf of quasi-feudal ministers (who, being politicians, come under a different code of behaviour from theirs) to a serflike public.

[...]

The chief trouble with the official style is that it spreads far beyond the formal contexts to which it is suited. Most civil servants, having learned to write in this way, cannot throw off the habit. The obscurity of their public announcements largely accounts for the disrepute into which Departmental activities have fallen: for the public naturally supposes that Departments are as muddled and stodgy as their announcements.The habit of obscurity is partly caused by a settled disinclination among public servants to give a definite refusal even where assent is out of the question; or to convey a vigorous rebuke even where, in private correspondence, any person with self-respect would feel bound to do so. The mood is conveyed by a polite and emasculated style — polite because, when writing to a member of the public, the public servant is, in theory at least, addressing one of his collective employers; emasculated because, as a cog in the Government machine, he must make his phrases look as mechanical as possible by stripping them of all personal feeling and opinion.