The question is: what is an "agency"? To OMB, when they say "agencies" or to GAO, I think it mostly means cabinet-level departments and the individual agencies (SSA, FTC, etc.). To someone who worked in USDA, it means FSA, NRCS, FSIS, FNS, etc. Although there's been a long push to build up department level resources and oversight, it's still true, I think, that the individual agencies within USDA are where the rubber meets the road.
This was triggered by GAO's suggestions for OMB oversight of agencies, as outlined in this Federal Computer Weekly article.
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