According to whom? There is a pretty strict definition of means of production, as it was labeled by Marx & Engels, and 'bureaucracy' as a concept isn't it.

Adding on to this: there is no rough equivalent to Lenin capturing the railroads in the USA, at all. The bourgeoise have controlled the means of production from 1776 til now.

Who owns amazon fulfillment centers? Who owns media companies? Who owns airlines? If it ain't the workers, then nobody has seized the means of production.

Bureaucracies are not the means of production. Actually, Marx specifically sees bureaucracy as the polar opposite of the means of production, and a large part of Marxism is that the bureaucracy and other state apparatus molds itself to the owners of the means of production.

Railroads and infrastructure are the means of production because they're the material things that are required to produce other material things.