It’s interesting. It’s not like he didn’t work. Until Clinton was in office and they gave him no work to do but kept him on not needing to work.
There was obviously a grift going on where they needed employees on the books. He probably had nothing to do with it.
Yes. They hire people to max out their budgets so they can justify a request for more money.
Department heads want to have as many people under them as they can. Whether they are needed, is a secondary matter.