It's very simple, he knows it is bad pr to make it official policy when it can be done through extremely vague and obscure bureaucratic policy and authority rather than an official power because at worst can be obfuscated to individual bad action and challenges in court or similar. If such a thing does happen major figures can detach themselves and whatever is decided can once again be worked around through careful wording or interpretation. When civil servants can be the buffer and armor to the intent it is much more enduring than when it is front facing to the public that may oppose it.