He used to think 'X' about 'Y'.

After years of interaction with people who experienced 'Y', he learned that 'X' was wrong, the correct answer was 'Z'.

He feels that he has limited power at the federal level to implement 'Z'.

On the other hand, he knows if 'Z' is implemented at a state level, there is a possibility of Federal involvement, which in turn means he is encouraging those at the state level to act where they can, and at least be aware the feds won't fight them on the issue, and maybe even help. Maybe. Remember MMJ in CA.

This is perfect use for the bully pulpit. And X,Y, and Z can be replaced with many different things and still be valid.

Wow, I've refactored a standard box response. I'll be cutting and pasting this answer into the next of many posts.