He's said publicly, more than once, that he intends to shut it down. This is not a case of the president working within the leeway of his office and making small changes. He said he was going to shut it down and then made actions to do just that. It is an overreach of presential power. Congress not working well is not an excuse, any more than robbing someone is ok because you needed cash and the lineup for the bank was too long. The ends don't justify the means.
This is part of what he was directly elected to do, and he is doing what he can with the powers he has to do what he was elected to do. Everyone knows Congress won’t get it done, so good governance would be to route around Congress to do it, and so it’s a good excuse.
