Wondering about the interactions between special bureaucracies like intelligence services and executive, of which they implement decisions, this article wants to fill a lack in the bureaucratic and state-controlled theoretical reflections. It reviews the main concepts that contribute since more than one half-century to the understanding of the relation between policy and intelligence, in the United States and in France. It points the slants that interfere in this relation, the ‘deep State’ as the ‘incomplete State’.