Making something illegal is the prerequisite to enforcement. These are separate parts of the government. You can't build enforcement infrastructure around something that isn't yet illegal! You don't even know what that would look like until you know what the laws you're enforcing are. Enforcement is the goal of these processes, the laws are the foundation from which enforcement stems.
It is true that simply putting a law down doesn't mean the problem is solved. But solving these problems doesn't happen all at once, so there's no reason to criticize the first step for not being a leap to the finish line.