By reporting internally:
- The secrets stay secret. Congress, the Courts, and especially the American public will never know.
- The problem can be "addressed" without doing anything.
- The malcontent identifies him or herself to the higher-ups, who can decide how to handle him or her from there and most especially prevent them from doing more damage.
- If the malcontent is not satisfied with the result and later leaks for real, he or she will be first on the list of people to look at to identify the leak.
- If there is some shady practice that's becoming too well-known within the agency, it can be quieted down so fewer employees know about it.
- Maybe, occasionally, there really is some wrongdoing they would like to know about and stop, limit, moderate, or otherwise actually address. (Har har, I know right? lol, rofl, lmao, etc.) More likely just legalize and legitimize.