The recommendations are to be made to the president or did you miss that part? When someone is making policy aren't they in control?
Read most closely. They aren't making policy. They are making policy recommendations. Just like if I recommend you order the fried oysters, it doesn't mean you ordered the fried oysters.
Read this very slowly and let it sink in.
They are making recommendations to the president. The president makes the policy.
Who only has the power to enact policies under authority coming directly from the constitution or by congressional statute.