We Have a Constitutional System That So Fragments and Divides

We have a constitutional system that so fragments and divides power that it's impossible to give this country effective, long-run leadership . . . . The system has led to an inability to plan and get on top of problems ahead of time. Even at best, this country has always been twenty to sixty years behind other industrial democracies in dealing with tough problems. -James MacGregor Burns, 1988
Which aspect of United States government might Burns cite to support his argument?

A) The use of the electoral college in presidential elections
B) The President's power as commander in chief
C) The division of policy-making power among national, state, and local governments
D) The role of political parties in congressional decision making