This question corresponds to similar questions asked in the context of corporate legal departments and private law firms. As in the case of those two institutions, the answers will provide an insight as to the real importance of the legal department within the agency. For example, the General Counsel of the Treasury or the State Department or the Securities and Exchange Commission appears to have access to and be vitally involved with the respective Secretaries and Commissioners. Presumably staff lawyers share in that. However, the same may not be true in all cases or at any given time. Political appointments sometimes put people together who find they have personality conflicts.