I'm guessing what Trump is doing is not the most efficient way to do it, but isn't he trying to get rid of the "permanent bureaucracy" - the people responsible for creating policies and spend money, that are not elected and don't have a term limit?
That idea of an unelected policy maker is a work of political fiction. There are two types of federal employee: political appointees and senior executives, who do not have job security, and the merit-based civil servants who have job protection in the sense that they can only be fired for cause. All of them can act only within the bounds that Congress defines – that’s why there are lawsuits about things like whether carbon dioxide is a pollutant because the EPA can’t regulate outside of what the law authorizes.
