> The system was created with the assumption that the president would act cautiously and judiciously

Not at all. The founders were focused on having a vigorous executive who could “just do things.” https://avalon.law.yale.edu/18th_century/fed70.asp. The system they created is not based on the premise of cautious bureaucracy. It was based on having frequent elections that would empower a vigorous president and political appointees to carry out what they had campaigned on.

The founders were men of action. They would be horrified by how our government today is run by lawyers through APA litigation. The HR-ification of the American government is a mid-20th century invention.