Government does not actually “do” the executive action in everything. But government is a rough and messy consensus on the set of rules and constraints within which the “specific people doing concrete actions” act. Large scope actions that impact the public need to be within such rules and constraints. Historically CEO’s of large corporations have quite often acted so as to ignore said rules and constraints primarily for rapid aggregation of monopolistic power and concomitant profit. There is harm from monopolistic power in new and emerging industries hence government action via enforcement of rules and constraints is important. Individuals eg in the office of the AG may be the “specific people doing concrete actions” but they do it on behalf and with the full power and authority of the US Govt which acts through “specific people doing concrete actions”. It’s not an either or.