Unfortunately, that snail's pace is the problem.  If it takes a year to fill a position, there are those who will shrug and say that the position must not be needed, never mind that the rest of the staff is working extra hours to cover the job.  The same thing happens in the private sector if it takes months to fill positions.  I am seeing it in my current employer, my department needs to about double in size, they are slowly filling those positions, but as it stands now most of us are weeks behind and being pressured to work 12 hr days or weekends to make up the slack.  While we are doing it, it is only possible for so long.  The pace of change in government is slow enough that it will in the end result in more turnover, which in and of itself is extremely expensive.  But hey, make these changes and prove that government can't do anything right.  That is what much of the right believes anyway.