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I suspect that it was much like the "too big to fail" scandal. President Obama was new to the game and let the people who said they knew what they were doing run the show. On one hand he's got the feel-good speeches he made as a candidate and on the other hand he's got agencies and contractors with billions of dollars of budget on the line all pushing as hard as they can to justify their existence and their budgets. The inertia alone was probably impossible to defeat given how divided his focus was (the economic collapse and the two years of obamacare politics come to mind).

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