So, who is responsible?
Congress, the senate, the courts, and, yes, the President. We've created such a HUGE bureaucracy that the president can't change the system by simply firing the head of any agency. One of my best friends is a division chief at one of the super-secret agencies. He's been through this many times. He says that the govies simply wait out the new appointment until he/she is gone. Usually three years max. It's easy for the low-levels to wait the new, gung-ho, top people out when you're on a cushie government salary with virtually no possibility of being fired. Worst case you get transfered and even that takes years.
The only solution is for the Senate and Congress to start appointing judges that follow the law and make agencies accountable (by use of the wallet).
To lay it soley at the presidents feet is too simplistic.