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Institutional action failure reframed as failure of coordination across time, not across actors. Different temporal actors control different stages: analysts dominate sensing, managers govern interpretation, executives issue commitments, operators execute, successors inherit consequences. No structure enforces continuity across these temporal boundaries.
Reform efforts repeatedly restart without resolution because responsibility fragments across time—each layer optimises locally, learning is protected only until it threatens authority, execution is deferred to future administrations.
CEA-LTE Section 2.2