The authority to issue executive orders traditionally belongs to the chief executive, like the governor or a county judge.

Three weeks ago, Texas Comptroller Don Huffines signed what he called an executive order aimed at eliminating a “hidden tax” on fees charged by virtual marketplaces to sellers.

“There will be a lot more coming,” Huffines said as he held up a jumbo printed version of the order in front of tax industry members, associations and consultants. “This puts tens of millions of dollars annually back in the pocket of Texas families and small businesses.”

Huffines made good on his promise in the weeks that followed, as he issued three more executive orders. The orders target a tax for medical records, funding for Flock surveillance cameras and ensuring no state dollars support diversity, equity, and inclusion programs.

Except they might be executive orders in name only. The orders themselves direct comptroller’s office staff to start the formal process of changing agency rules, something the comptroller can largely do on his own already.

It is not clear why Huffines is calling the directives executive orders, a unilateral authority that typically rests in the hands of the chief executive at each level of government, whether it is a county judge, Gov. Greg Abbott or President Donald Trump. Huffines’ office did not respond to a list of questions or an interview request.