The executive orders threaten to undermine the congressional legislation, the most significant housing package in 36 years, because they risk adding another complicating factor to what are already tenuous congressional negotiations. While the bipartisan package passed the Senate by a vote of 89 to 10, House leaders have called for a conference in which differences could be hammered out before taking a final vote.Mr. Trump’s support for the legislation has been muted, as he indicated he supports housing legislation, but has also said he will not sign any legislation until Congress passes a bill containing voter restrictions, which is unlikely to pass. The executive orders, which bypass Congress, add another layer of uncertainty because they may indicate that Mr. Trump sees a way to outmaneuver the legislative branch.