Subject: Re: The MOU's unspoken word.
He doesn't know how to handle having to get someone else to agree with what he wants to do before he can do it.

But he's demonstrated that he doesn't need it. He just orders it, his minions obey, and Congress -at most- grumbles. Nobody actually stops him most of the time. Some courts do, I suppose. But they you get stays on the stays, and the courts don't rule for years.