Security has a concept called attack surface: the more kinds of exposures, the greater the attack surface. Similarly we can think of governance as having an argument surface: the more kinds of decisions there are to argue over, the less functional the institution will be.
But does pushing some decisions to a different layer really change the "argument surface"? Doesn't it just mean "governance" now includes more institutions than if one institution makes all the decisions?
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Different layer and different implementations / projects / organizations. Each team can have their own arguments and decisions compete on the open market.
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