By the time I got there, the Cold War was over but natural disasters were still occurring and nobody had a clear sense of what to do. Once you have a mission, you also have a blueprint for structuring your organization. Structure your organization around your mission. Seven years ago, FEMA was organized to run programs, not to serve people. Just about every program had an office.
Organizations help drive a mission, but it's people who make organizations work.
That's why this next rule is especially important in leading change in government. Work with your career employees. I'm a baseball fan. Every baseball fan knows that when you've got a great lineup that's working hard but losing games, you don't blame the players. You blame the manager.