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Notes -
The White House chief of staff and his staff, high level people in the executive branch offices like the State Department and the CIA, heads of cabinet departments for domestic issues. Hundreds of anonymous bureaucrats.
But how do they decide who's on top? What if CIA wants one thing and State Dep another and chief of staff another?
Presumably they discuss and either compromise, trade favours, or go with the opinion of the most senior & respected person in the room. It's entirely possible to make a flat / informal hierarchy work, it's just hard to break it out of serious deadlocks or disagreements.
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