Beef recall -- Who made the decision? Who's to blame?

The recall this week of 143 million pounds of beef produced in California is an interesting study in decision-making and response.

Specifically, was the decision to recall the beef made by the Federal gov't in Washington D.C. or by the individuals on the ground who recorded the video of animal mistreatment and saw fit to let others know? Local actions, global implications?

Response has been a proposal to strip the U.S. Dept. of Agriculture of its responsibilities.
(See: http://www.iht.com/articles/ap/2008/02/20/america/Slaughterhouse-Abuse.php)
Is this placing blame solely where it needs to be placed?