Answer:
I think the answer is problem and solution
I believe you forgot to post a picture of the abstract with the question.
Michael Glennon points that there are many agencies and departments - military, intelligence, law enforcement, diplomats and others - that constitute the national security. This means that the U.S government that is elected - <em>president and congressman</em> - are not the ones that take care of national security directly: <em>“America’s efficient institution makes most of the key decisions concerning national security, removed from public view and from the constitutional restrictions that check America’s dignified institutions”</em>
Glennon bases this argument by the National Security Act of 1947 that created the foundation of the modern system. This act also gave agencies and departments self-regulating and self-reinforcing policies and gave more autonomy to them.
