He uses the history of agricultural reform in the US in the early 20th century to make the case for how change can bubble up from below, through trial and error and expertise developed at the local level that is then shared and adopted---gradually at first--by other practitioners. And results can then quickly be disseminated through information systems and technologies we now possess that are hundreds of times more efficient than 100 years ago.
Fascinating reading, which you can find here http://www.newyorker.com/reporting/2009/12/14/091214fa_fact_gawande if you don't want to go out and purchase the Dec 14 issue.
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