What factors influence whether a president "makes" legislative policy using his personal staff or whether he "buys" it from departmental or agency personnel?

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All three factors - transaction costs, multiple departmental jurisdictions, and proximity of president's preferences to those of Congress - can influence a president's decision to either rely on personal staff to make legislative policy or to buy it from departmental or agency personnel. Transaction costs relate to the costs associated with negotiating and coordinating with Congress and other actors in the political environment. Multiple departmental jurisdictions can create difficulties in coordinating policy among departments, and may make it more appealing for a president to rely on personal staff with a more centralized focus. Finally, if a president's policy preferences are closely aligned with those of Congress, there may be less need to "buy" policy from departmental or agency personnel, as the president may be able to rely more on working directly with Congress to achieve his or her policy goals.

What Factors Influence Whether a President "Makes" Legislative Policy Using