The leeway of the two executives in organizng and staffing were considerably different,however.Chapin closed down plant,moved key managers,hired and fired,virtually at will.As Michael Blumenthal has written about Treasury,"if you wish to make substantive changes,policy changes,and the Department's employees don't like what you're doing,they have ways of frustrating you or stopping you that do not exist in private industry.The main method they have is Congress.If I say I want to shut down a particular unit or transfer the function of one area to another,there are ways of going to Congress and in fact using friends in the Congress to block the move.They can also use the press to try to stop you.If I at Bendix wished to transfer a division from Ann Arbor to Detroit because I figured out that we could save money that way,as long as I could do it decently and carefully,it's of no lasting interest to the press.The press can't stop me.They may write about it in the local paper,but that's about it."19
For Costle,the basic structure of the agency was set by low.The labs,their of the locations and most of their personnel were fixed.Though he could recruit his key subordinates,again restrictions like the conflict of interest law and the prospect of a Senate confirmation fight led him to drop his first choice for the Assistant Administrator for Research and Development,since he had worked for a major chemical company.While Costle could resort to changes in the process for developing policy or regulations in order to circumvent key office directors whose views he did not share,