OK, what that really means is that half of the people that should've been appointed to key positions have not yet been appointed.
The excuse,as expressed by Hilary Clinton, "The clearance and vetting process is a nightmare and it takes far longer than any of us would want to see. It's frustrating beyond words."
Well, maybe part of the problem is that so many of the prior appointees had major legal and ethical issues (can you say "tax cheats galore"?) and those doing the investigating and clearances have actually begun going through their background checks with the fine-tooth comb they should've used earlier???
Or maybe Obama's done the end run himself and that's why he's been appointing all the czars right and left, ones of whom the taxpayers had no say in the selection or placement, and whom are accountable to no one but Obama. Read for yourself the New York Times article (but remember to read with a jaded eye, 'cause this paper's hardly conservative friendly).