In her testimony before the 9/11 Commission, Condoleezza Rice spoke repeatedly about “structural and legal impediments”, “structiral problems”, “structural inability”, etc., etc. The basic idea is that the failure to respond to warnings about terrorism was because of problems in the bureaucracy, and that the Bush administration was working on these problems when 9/11 hit.
Richard Clarke knew all about structural problems. When Clinton’s National Security Adviser Sandy Berger “convened the Principals [Cabinet-level officials] in crisis mode”, he was taking steps to get all of the top people in the Clinton Administration to work at overcoming the structural problems of the system.
In the Clinton Administration the top people worked to overcome the structural problems. In the Bush administration, they didn’t. The bureaucrats were the same in both cases.
The problem wasn’t structure, but leadership. The ones responsible are Rumsfeld, Ashcroft, Cheney, Bush — and above all, Rice.