You’re point about /effective/ governance makes sense. To that I agree, often the EOs are overturned or have little affect.
However, the damage EOs cause is very real, lasting, and can be disastrous. For example Trumps tariffs, while ineffective at their (stated) goal, were eventually overturned. But the damage they caused will be very long lasting. Supply chains are organic, they respond to outside forces, when those forces cause them to shift and change. Rarely do they on their own shift back.