Everywhere, there is a failure of vision and amangement. You see, we have so many followers and not enough leaders. Empowerment is the way. Set a vision and let the people innovate.
Take a sample scenario. Let's assume the EPA's run like a company. Then, the staff has to write plans and has to do something, even when its not warranted, so change becomes change for change's sake. Ideas are fine, but the lack of good ones and people wanting to show some accomplishment for their rating reviews, will do anything, not what's right. Too much documenting, not enough doing. So agencies encroach more and more, rather than make innovative strides. To fix it takes real leadership. I don't think you get that with ticket punchers appointed for a few years.