[Mad Dawg]

I think it's important to remember the principle of "subsidiarity", which generally means that the higher ups will resist having decisions bucked up to them, but would rather things be taken care of locally. I was going to say "lower down the "chain of command", but that gives the wrong image, I think.

So I THINK your last paragraph is correct.

[Quix]

Quite plausible and accurate to life in my estimation of things.

[Alamo-Girl]

Thank you for your insights, dear brother in Christ!