I am describing entrenched and systemic issues. Agencies have long used highly “creative” interpretations of legal statues. I am also pointing out a lack of oversight by OPM. These two phenomena are not exclusive to any one administration, they are two highly systematic problems that is highly entrenched. Review the PLUM and see how many political appointees manage government, who are often ignorant of the law or find creative ways to skirt around it! OPM doesn’t do much auditing, so problem become highly probable and/or entrenched.