[flumbaps]

Large and complex systems can coordinate in a decentralised way to form a monolithic entity. Local interactions can lead to global convergence. Swallows in flight is a good example - each swallow only pays attention to the others nearby, yet the whole flock is coordinated. I'm not saying that is how it is in the US government. However, the closer the agencies work together, the more monolithic the government is likely to be (otherwise they wouldn't be able to cooperate).