it is. and the misunderstanding of this is precisely why musk will fail with his non-power.  everything, everything, slowing government down, wasting money and time, etc. comes almost exclusively from policy. the average gov wagie has no power over this policy and sess rarely roll back policy, modify it significantly, or just remove it.  it's basically a bloated mess of rules that stop you at every corner and pretty much only military and intel gets away with stepping around things and even then it's only for operations. the pieces of government that a worm may interact with that actually move fast, are breaking countless policies and have leadership absorbing the risk.
United States