Freeze until they are taken by a court is how I view it. If a Cabal Puppet is arrested the they can instantly transfer funds or have another Puppet do it. This is mentioned in the EO and allows no pior notice to the "Blocking" of property.

I think that it's more about being sure the assets don't disappear before the court can take them away.

Again, I'm sick and trying to remember the EOs as I read them years ago.