Only people have intentions.

Nothing is greater than the sum of it's parts.

The idea of an institution is an abstraction, a lie we tell ourselves in order to build a mental model of the world simple enough for our brains to handle. We cannot model or even conceptualize of the countless people and relations which together form the US state department so instead we replace that chaotic network with a single block. We draw arbitrary lines delineating one department or organization from another when in reality networks overlap and blur together. We anthropomorphize, assigning intentions and aims where in reality no single will exists. 

Institutions are a lie. When used properly, they help us makes sense of the world and that clarity lets us cut through the noise. When used poorly, they obscure more than they reveal or give us the illusion of knowledge where in reality we have none.