It is a cumbersome, slow process that often produces policy that reflects a bland average of the decisions of many different bureaucrats. And it certainly doesn’t guarantee good outcomes, because these are ultimately policies to implement the goals of the US president.
But it’s at least a process, operating according to predictable rules, that is designed to produce achievable outcomes that match material means to explicit goals. We want to achieve X, so here’s how agency Y can legally leverage the resources it has to contribute according to a coherent plan.