The elected officials act as principals. In general, they command the government. The appointed officials act as agents. In general, they implement the commands of the principals. But the commands are rarely detailed.
Delegation gives appointed officials power to make many decisions independently.
Principals and Agents Principal-agent theory in political science suggests that the relationship is even more complicated. The fundamental problem is information asymmetry. The agents usually have more information about the details of their work than the principals. This gives the agents opportunities to take hidden actions without the knowledge, or consent of the principals. Conclusion American government is fragmented.