I was hoping you hadn't seen this reply of mine. Because it turns out I was wrong. I do have a /boot/grub2 directory. And it has a symlink named 'grubenv' to ../efi/EFI/fedora/grebenv. Grub is actually using /boot/efi/EFI/fedora/grub.cfg. I realised this a few minutes ago when the /boot/grub2/grub.cfg I generated was having no effect on grub, after making a few timeout changes.

Is it possible that the grub2-mkconfig only updates the config file if there is a change in the system? I ask because, earlier in the day when I ran your grub2-mkconfig example, it had no effect. But since then I've removed 3 prior kernel versions so I'm guessing that would have caused an update of the config file. Although I'm still unsure as to why grub wouldn't load the config file earlier.