It's not just about scouting per se, signings per se, or budget per se.
Those clubs, RBL and Dortmund for example - they have DOF's that oversee a philosophy that runs through everything they do, so they recruit - Head Coach and players - to fit that philosophy - everything they do from the head coach, the academy coaching, to the recruitment, to the branding - is in harmony.
the Head Coaches aren't alway identical in the way they do things, but if the y don't fit the core philosophy or values of the brand/indentity then they won't even be considered, of course if they can't get the best out of the squad that's been assembled with the philosophy in mind - they move them on for someone who does - they don't chop and change the whole philosophy of the club for one manager to the next, which means changing your recruitment models and how everyone os coached, including academy to suit the new manager.
We need to get our fucking shit together. We need a DOF desperately, Levy needs to do his job, which he generally does extremely well, of running the business, but we need someone to oversee the implementation of a core philosophy and see that everything we do is in line with that philosophy. It needs to be - much like the likes of Dortmund and RBL - progressive, aggressive - something fans/punters in the stadium and globally can identify and buy into, even when it's not always successful, we need to be able to see "a plan" have an identity that drives us forward.
How much money you spend is less important than how cleverly you spend it and the coaching it gets. Look at RBL, their squad probably cost about a tenth of ours, but they've outplayed us. Ajax did the same last year with another cheaply assembled squad.