I imagine it’s a nod to the way the stated goal would normally be pursued, but in this case is not.

It sounds like a good idea to establish a uniform national policy! And the federal government can do that (although only for the very specific purposes spelled out in the Constitution). The right way to do that is to pass a law through both houses of Congress, and the president to sign it into law. Maybe the law even specifies a broad framework and authorizes the executive branch to dial in the specific details (although the court seems to be souring on that kind of thing too).

The god-king proclaiming a brand new framework governing a major new sector of the economy To Be So is.. not the normal way