The Donald still believes he is in charge. His appointees are doing end runs around him and he doesn't even notice. Why?

Well, that's what centralized government is. It is too much for any one person, so they delegate authority to underlings, who become dictators over anything that comes across their desk. That's why they are called "bureaucrats" - French for "desk rulers". There is no control over bureaucrats as long as they don't embarrass their superiors. Bureaucracies get worse and worse until the only way an honest man can support himself is by smuggling.