The DC area headquarters are particularly burdensome because of cost of living.
But many of those headquarters are way to overbloated. I'm reading lots about the State Department and USAID. I've had years of experience with both. I'm glad they are cutting both. Most State Department workers are working in and around the beltway, and not in embassies or in foreign countries. A large part of the diplomatic mission is completed by special operations teams training foreign militaries, and DoD during partnered exercises.
About half my combat patrols in from my first Afghan deployment were DoS or USAID related. In many cases, I was the lead in completing the mission. In almost all cases, I had no one from DoS or USAID with me. That's a little hidden secret: most of the DoS and USAID missions are spearheaded by the DoD.
I remember a huge DoS project I was running in my first Afghan deployment. Anything that went off the rails, I got a pissy phone call from a DoS worker living in the safety of Jalalabad's base. The person trained in what I was doing was sitting in AC 100 miles from the actual mission, telling me what I needed to do. Neat.
To throw salt into the wound, when I was in grad school for national planning and policy, we'd have DoS guest instructors telling us how DoD was screwing everything up. The commissioned officers in the room basically would ask "where were you?" The answers always were beltway or some capital/big DoD base, safe from everything, writing white papers.
If you're interested, read "The Ugly American." Great perspective into how the DoS works and why it's not effective.
(Apologies below to the journalism major, but I used some incomplete sentences to express thoughts stream of consciousness.)
My career has been in the private sector, 3.5 decades. I've had a successful track record in high tech mfg. & development.
Most importantly, I've learned from, worked with, hired, and taught/trained a few hundred very intelligent, competent, highly skilled, and motivated people.
Here, the various business units write white papers too. They are useful in stating assumptions, competitive threats, identifying and down-selecting strategies (market, technology, manufacturing, etc.) and, to a lesser extent, when combined with other white papers, offer a menu of options for executives to invest time, people, and money to pursue opportunities.
For my career, I've remained in "front line" manufacturing and technology development roles. Direct cost of manufacturing and new product development, transfer, and delivery. Pursued intentionally instead of ascending to staff roles / higher leadership roles. Part of that is my innate nature of personal reward / values. Part of it is not wanting to be excess indirect overhead when business cycles swing lean / fallow.
As a result, I likely forwent high-6-figures or even >7 figure of missed incremental salary/bonus over that career. No worries, as I've only had two stints in my career I couldn't sleep at night, and I still have my morals, and friendships. It's been good, all considered. I'm also frugal and therefore will never starve.
The good leaders in our organization listen when we correct their assumptions about the asymmetry and/or limitations of our capabilities which we can't overcome, and the reality of the time, effort, money to achieve the capabilities we need. It may take a few repetitions, but it usually works. Historically, our business has been very successful and perhaps our biggest flaw is we deliver late more than we'd like (but that's because we set high goals underpinned with optimism). I count only two (thankfully short-term) leaders in our organization in which I had no confidence. And my career will end without having another such leader. Our current leadership regime has limited / no history in our branch of the business. Maybe an analogy is a leadership cohort of either artillery or air cavalry experience also commanding an equal-sized unit of CeeBees. But they listen.
There are functions in our business which write some of those white papers, but also contribute little (guidance, decisions, resources, related support) to execute a strategy, yet tout the strategy.
In my business, if a white paper is "bad", it results in sales opportunities either not emerging or being underwhelmed vs. expectations. Or, capital money wasted which could have been invested elsewhere or returned to shareholders in dividends. Or, costs excessively high and profit margins missed. In egregious cases, it has resulted in a pull-back for a few months or years in business growth.
In your business / former business, if white papers are wrong, people can die - whether American forces, mercenaries, FMT/IMET advisees, etc.
I am no military historian, and I fully realize even well-considered objective historical views still have a lens, but from what little I've read, there are two analogies I've made which I seek to avoid:
1. The dual Westmoreland stubbornness of insufficiently listening to subordinates and then outwardly professing a path to success when inwardly admitting it will fail.
2. The McNamara hubris of believing the competition has a value and priority system aligned with your own.