The states will sue and win; this would have to be changed by congress, as it is a bill, and FHWA or Trump cannot issue a memo or EO, respectively, to change that.
Of course, the many states that sue and eventually win will take quite some time, and until then it’s just going to be complete havoc and insanity, which is the actual goal.
It’s the same pattern with all 65,000 EOs or whatever it’s been at this point; throw all the spaghetti at the wall, see what sticks, and blame anyone but the administration for any problems that occur, and those that end up being deemed illegal or unlawful will simply end up being forgotten about, and the others will stand.
A DDOS of the legal system.