Building officials do not have the authority to approve new products based on ICC-ES reports since that would effectively give them the authority to modify the building code. The building code as well as any law or regulation can only be modified by the legislative body that adopted it. If this were not the case then why does your local city council or state legislature need to adopt the building code in the first place.
If the building code provides performance standards, such as for post installed concrete anchors, then the product can be used without approval from the building official as long as it can be shown that the product meets the criteria specified in the code.
This means that we need to find a legal way to update the code on a more frequent basis. Where states have adopted a building code the state could create a state program to approve new products and systems.
The building official does not have the power to unilaterally modify the building code and provisions in the IBC that attempt to give the building official such authority are not legal because they either violate the US or the State Constitutions. The primary problems have to do with the separation of powers and improper delegation of legislative authority.
Our system of building regulation is broken and we need to find legal ways that address the problem but giving the building official dictatorial powers is not one of them.
IBC Section 104.11 was intended to deal with unusual cases and cannot be used to implement code changes unless we ignore our system of laws.