It may not be directly applicable to the incident, but it appears 281 LEO from at least four different agencies (local, state, and federal) responded. It is unlikely that all of those people had ever worked together before that day. I even wonder how effectively information could be communicated. But the real issue with ad hoc teams of that size is that because everyone is responsible the reality is no one takes responsibility. This behavior is well documented in business operations. The team size tends to diminish initiative because all of the people doing nothing must have a good reason for doing so. So I am not surprised that the majority of officers did not engage.