What a terrific find, Jane. Thanks for the ping.
This was done deliberately by Clinton; he had it all set up before he left office. Between this and the fact that he made a lot of employees civil servants who had never been so categorized previously tells me he was setting up a shadow government to bring down the new president.
http://www.freerepublic.com/focus/f-news/1620695/posts
A great article by Christopher Hitchens on this case.