From the Introduction: "The federal bureaucracy of the present day is the product of more than two centuries of legislative and administrative actions by successive generations of elected and appointed officials. As such, the diverse organizations and processes of the federal government are a consequence of the influence and decisions of thousands of officials with differing viewpoints about the role of government and diverse policy preferences. The federal bureaucracy's organizational arrangements are also reflective of ongoing competition between Congress and the President to influence the behavior of agencies. With its size, complexity, and idiosyncratic history, the federal bureaucracy is sometimes perceived as immutable. [...] This report begins with discussions of some tools available to Congress, the President, and agency leaders for initiation and implementation of executive branch reorganization. It then discusses interagency coordinative mechanisms that are sometimes used by each of these actors to bridge inter-organizational gaps. The report concludes with general observations regarding federal reorganization efforts."
CRS Report for Congress, R44909
Federation of American Scientists: http://www.fas.org/sgp/crs/index.html