Why didn’t Walt and Jesse ever implement a large empire plan?

They had the talent, the product, and eventually even the distribution connections with Gus and later with Todd and Lydia. But despite Walt’s obsession with “building an empire,” it always felt like they were reacting to problems instead of creating a real long-term structure or hierarchy like actual drug lords do. Why didn’t they ever try to form a proper crew, secure territories, and expand smartly? Walt kept saying “I’m in the empire business,” but his actions were impulsive and ego-driven. Jesse was capable and loyal, but they never took the time to build a system — no lieutenants, no trusted circle, just temporary partnerships and sketchy help like Saul’s guys or Todd’s crew. Like in that scene in Saul’s office after Combo got killed — Walt was going off about how they needed “a proper infrastructure,” saying it wasn’t sustainable the way they were doing things. He even mentioned they needed more than just “one guy with a rubber hose and a sack of cash.” You’d think that moment would be the start of them building something real.