I think if a person is inducted in a "builder's" category that they should have made a major contribution to a franchise or that they should have boosted the game's profile in some meaningful way. Or they should have changed the game for the better.
Most of the "builders" in the the HOF are coaches and GMs of championships and dynasties. Don Cherry coached for six years and his teams didn't win anything.
The two most notable outliers are broadcasting pioneer Foster Hewitt, the guy who coined the phrase "He shoots he scores" and the first guy to ever call a television game. The other is Willie O'Ree, the player who broke the "colour barrier".
O'Ree is a recent inductee, and with all the emphasis on race these days, it's no mystery why he got in. Even though he played most of his career in the minors, being the first "racialized" player in the NHL is now considered significant enough to be enshrined as a builder in the NHL. After all he paved the way for hall of famer Grant Fuhr and future hall of famer Jerome Iginla.
Foster Hewitt, the lone media figure, was the protypical game caller and colour commentator. Widely revered as a genuine class act the Hall of Fame also has a trophy named after him.
Don Cherry on the other hand is very much the antithesis of these two. I used to think he deserved to get in because he was an "icon", but then the hangover wore off.
He may be an "icon", but he's an icon for people living in the past. A glorified bigot, clown and bully.
EDIT: I shouldn't have glossed over O'Ree's post-playing career. He has been very active in promoting junior hockey and is a fine ambassador.