Well, much of this shadow government consists of the executive branch. Obama is still obviously wholly accountable, as he can likely issue executive orders unco

Well, much of this shadow government consists of the executive branch. Obama is still obviously wholly accountable, as he can likely issue executive orders unconditionally changing the policy and operation of agencies at will. Of course, he has to make good appointments and get reliable people to carry out any semblance of that, and most of his work has to be indirect. But, like the CEO of a large corporation, the job is whatever it takes to get it done, and is judged by the results without regard to the difficulties.