"Billet" is irrelevant if Congress DESIGNATES that funding "for Salaries, Expenses, etc"
It's how the appropriations are worded in the legislation (I have had to take multiple "Appropriations Law" courses in order to support/approve direct-report procurements and contracts as a Supervisor and COTR). This is why I linked to what was done under Clinton - which shows what is needed to "authorize" a reprogramming of funds for such a purpose.
(ETA - some agencies were told they would have "buyouts", which again, are illegal absent authorizing legislation)
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