Why do policies fail?

Perhaps the best quick answer was stated by Albert Einstein:

"No problem can be solved by the same consciousness that created it." Answer: The quote attributed to Einstein above is a misquote and what Einstein actually said was: "No problem can be solved by the same level of consciousness that created it." This clarification is important because if we accept the misquote as an answer to this question then one is led to believe that Einstein believed that the same consciousness that erred can not correct that error. This is not what Einstein, who had a fairly firm grasp of truth, believed. The same consciousness that creates a failed policy can correct this failure either by creating a new policy or acting in better ways to implement the failed policy. However, that correction of error will not occur if the level of consciousness that created that error remains. When we err, our level of consciousness is necessarily lower than we are capable of being and when we err we must necessarily raise our level of consciousness in order to correct the error.