“…Thus, departments have an incentive to focus on other hostages. There are, after all, many things the personnel director and his staff value: they wish to preserve their jobs, authority, prestige, and time; they do not want the agency to lose its budget appropriation, autonomy, or legitimacy (Halperin, 1971;Perrow, 1970;Blau and Scott, 1962). A credible threat, however, is hard for departments to develop.…”