From the article:
"One senior American official in Baghdad said the U.S. team had been so concerned about being seen as an occupying power that officials were overly reluctant to exert their full authority.
"We came in here hands-off," the official said. "There was a bit of ambivalence between being an authority and being authoritarian. We were so concerned about being authoritarian that we didn't exercise authority."
Also, I think Garner may have been of victim of Bondine's incompetence, who was foisted upon him. "She had been in charge of restoring vital public services and forming a democratic local government for the capital's 5 million residents -- a job that is incomplete." Most complaints were regarding this area.