When bureaucracies fail, William S. Lind notes, one of their favorite ways to deflect demands for reform is to offer reorganization instead:
The intelligence agencies themselves, like all bureaucracies, hate airing dirty linen. Doing so offers policy-makers a look inside the agency itself, which in turn invites demands for further freeform. Like the military services, the intelligence agencies want to offer policy-makers a single, agreed option, coupled with the message, “Everything is fine with us, except we need more money.”
The policy-makers, in turn, are mostly elected politicians who avoid making decisions and taking responsibility. What they want from our intelligence agencies is an agreed consensus they can use to cover their own backsides politically. If they go along with the consensus and the result is disaster, they can say, “Blame it on those guys. We just acted on what they told us.” But if they get competing estimates they have to actually think about, they end up responsible for the final decision and its outcome. So, in the end, both the politicos and the bureaucrats have common interest in giving the nation reorganization, not reform. That makes the outcome 99% certain.