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The opinion talks a little about the history. Pre-1986 there was no mechanism for the Attorney General to appoint USAs at all. Between 1986 and 2006 it seems there were a couple times the Attorney General re-appointed someone, but no one challenged it. In 2006 Congress abolished (c)(2) and (d) altogether. Then in 2007 it brought them back.
For Halligan, specifically, I think there were timing issues. Siebert resigned on 9/19 and the statute of limitations for Comey's charges would be up on 9/30. So that's ~7 business days to get Halligan confirmed in the Senate and secure an indictment. Halligan was ultimately appointed the 22nd and the indictment was docketed on the 25th.
For the others, part of the problem is that the way they've made them "Acting" officials under the FVRA means they can't go ask the Senate for confirmation. The FVRA generally prohibits the nominee for a position from also serving as an "Acting" official in the role they are nominee for, subject to some exemptions that don't apply here.
The key background to this is that as soon as the 2006 law passed GW Bush fired a bunch of his own Senate-confirmed US Attorneys for no obvious reason and replaced them with long-term interims. Democrats tried to run with this as a massive abuse-of-power Bushitler scandal and Republican senators saw it as an attack on their patronage. (The mos maiorum was that home-state senators from the President's party had a major role in picking US Attorneys). So if you are trying to tea-leaf-read Congress's intent (which you should only be doing if the actual statutory text is ambiguous, but on a superficial reading it appears to be) there was a bipartisan consensus against long-term interim US Attorneys.
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See my above comments, but those concerns aren't really valid when you consider:
There's no way Halligan was getting Senate confirmation and
This wouldn't have been an issue at all if there had been literally one other person in the office willing to sign the indictment.
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