This also creates these weird situations where the courts (or the Supreme Court, at least) says "Well the executive order is just an order, and federal agencies will actually have to implement it, and until we see the specific implementation, gosh, we can't evaluate whether the order is to do an illegal thing, even though it's pretty clear that illegal things will be necessary to implement the order. Maybe they'll find a legal way to do it, who knows? We certainly don't!"

Clown court.