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They talk about athlete health and safety, but I think most athletes are already incentivized to be healthy. If for no other reason than their ability to play the sport they love for longer. Supplements like HGH have uses beyond simply doping. HGH can actually help athletes heal from injury faster.

So someone bans drug X, then someone starts using drug XY until they ban that.

Exactly, and in many cases drug X has more research available, research that describes proper dosage and gives a full picture of possible side effects. Drug XY is often more of an unknown and poses even greater risk. So athletes are placing themselves at even greater risk.

Exactly it is the same issue with legal highs - they are often more dangerous than the illegal drugs they are substituted for.