If you don't understand ghost payrolling then you don't understand government. This happens at almost all levels from city to federal to varying degrees. I've seen flagrant more subtle abuses over the years. Try to understand the USGOV is the largest employer in America and unlike the private sector, it's unable to rely on its "board" (Congress) for effective oversight or reform. You're witnessing an attempt at a "turnaround" with all ugliness that comes with it.
Trump, like or hate him, is determined to put a dent in the fiscal nightmare this dysfunction has created for America. Hopefully everyone understands the problem isn't going to be fixed, but if he can achieve a substantive reduction in expense it will either give the next administration momentum to continue rationalizing government, or it could just as well provide cover that "enough/too-much was done" and its time to expand and spend again, into oblivion.