With rare exceptions, few large institutions change bosses every two or three years. Yet the U.S. Government has temps on top. Thousands of political appointees come in to run an agency or department and depart soon after, at the whims of the electorate, due to inside-the-Beltway bureaucratic politics, or because of their own ambitions. Many career bureaucrats view their temporary political bosses as 'ins and outers, ' 'birds of passage, ' or, more...