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Before you can dig into how cities and states are handling their coronavirus response, you have to deal with the elephant in the hospital room: Almost all of this would be simpler if the Trump administration and its allies had, at any point since January, behaved responsibly.

In the country’s new devastating wave of infections, a perilous gap exists between the realities of transmission and the rules implemented to prevent it. “When health authorities present one rule after another without clear, science-based substantiation, their advice ends up seeming arbitrary and capricious,”

“That erodes public trust and makes it harder to implement rules that do make sense.” Experts know what has to be done to keep people safe, but confusing policies and tangled messages from some of the country’s most celebrated local leaders are setting people up to die.

Across America, this type of honest confusion abounds. While a misinformation-gorged segment of the population rejects the expert consensus on virus safety outright, so many other people, like Josh, are trying to do everything right, but run afoul of science without realizing it.

Early federal financial-aid programs could have been renewed and expanded as the pandemic worsened. Centrally coordinated testing and contact-tracing strategies could have been implemented. Reliable, data-based federal guidelines for what kinds of local restrictions to implement and when could have been developed.

The country could have had a national mask mandate. Donald Trump and his congressional allies could have governed instead of spending most of the year urging people to violate emergency orders and “liberate” their states from basic safety protocols.

But that’s not the country Americans live in. Responding to this national disaster has been left to governors, mayors, and city councils, basically since day one

When places including New York, California, and Massachusetts first faced surging outbreaks, they implemented stringent safety restrictions—shelter-in-place orders, mask mandates, indoor-dining and bar closures. The strategy worked: Transmission decreased, and businesses reopened. But as people ventured out and cases began to rise again, many of those same local governments have warned residents of the need to hunker down and avoid holiday gatherings, yet haven’t reinstated the safety mandates that saved lives six months ago

Even in cities and states that have had some success controlling the pandemic, a discrepancy between rules and reality has become its own kind of problem.

it’s a lot of wasted time and money.” Instead of centralizing the development of infrastructure and methods to deal with the pandemic, states with significantly different financial resources and political climates have all built their own information environments and have total freedom to interpret their data as they please.

beneath this contradiction lies a fundamental conflict that state and local leaders have been forced to navigate for the better part of a year. Amid the pandemic, the people they govern would generally be better served if they got to stay home, stay safe, and not worry about their bills. To govern, though, leaders also need to placate the other centers of power in American communities: local business associations, real-estate developers, and industry interest groups

The best way to resolve this conflict would probably be to bail out workers and business owners. But to do that at a state level, governors need cash on hand; currently, most of them don’t have much. The federal government, which could help states in numerous ways, has done little to fill state coffers, and has let many of its most effective direct-aid programs expire without renewal.

If you make people safe and comfortable at home, it might be harder to make them risk their lives for minimum wage at McDonald’s during a pandemic.

However effective these kinds of robust monetary programs may be at keeping people fed, housed, and safe, they are generally not in line with the larger project of the American political establishment, which favors bolstering “job creators” instead of directly helping those who might end up working those jobs

Why can’t a governor or mayor just be honest? There’s no help coming from the Trump administration, the local coffers are bare, and as a result, concessions are being made to business owners who want workers in restaurants and employees in offices in order to white-knuckle it for as long as possible and with as many jobs intact as possible, even if hospitals start to fill up again. Saying so wouldn’t change the truth, but it would better equip people to evaluate their own safety in their daily life, and make better choices because of it.

Kirk Sell stopped me short. “Do you think it might be the end of their career, though?” she asked. “Probably.”

With people out of work and small businesses set up to fail en masse, America has landed on its current contradiction: Tell people it’s safe to return to bars and restaurants and spend money inside while following some often useless restrictions, but also tell them it’s unsafe to gather in their home, where nothing is for sale.

Transparency, Kirk Sell told me, would go a long way toward helping people evaluate new restrictions and the quality and intentions of their local leadership. “People aren’t sheep,” she said. “People act rationally with the facts that they have, but you have to provide an understanding of why these decisions are being made, and what kind of factors are being considered.”

that’s particularly true on the I.R.A., which has to build all these things in the real world.

we’re trying to do industrial physical transformation at a speed and scale unheralded in American history. This is bigger than anything we have done at this speed ever.

The money is beginning to move out the door now, but we’re on a clock. Climate change is not like some other issues where if you don’t solve it this year, it is exactly the same to solve it next year. This is an issue where every year you don’t solve it, the amount of greenhouse gases in the atmosphere builds, warming builds, the effects compound

Solve, frankly, isn’t the right word there because all we can do is abate, a lot of the problems now baked in. So how is it going, and who can actually walk us through that?

Robinson Meyer is the founding executive editor of heatmap.news

why do all these numbers differ so much? How big is this thing?

in electric vehicles and in the effort, kind of this dual effort in the law, to both encourage Americans to buy and use electric vehicles and then also to build a domestic manufacturing base for electric vehicles.

on both counts, the data’s really good on electric vehicles. And that’s where we’re getting the fastest response from industry and the clearest response from industry to the law.

ROBINSON MEYER: Factories are getting planned. Steel’s going in the ground. The financing for those factories is locked down. It seems like they’re definitely going to happen. They’re permitted. Companies are excited about them. Large Fortune 500 automakers are confidently and with certainty planning for an electric vehicle future, and they’re building the factories to do that in the United States. They’re also building the factories to do that not just in blue states. And so to some degree, we can see the political certainty for electric vehicles going forward.

in other parts of the law, partially due to just vagaries of how the law is being implemented, tax credits where the fine print hasn’t worked out yet, it’s too early to say whether the law is working and how it’s going and whether it’s going to accomplish its goal

EZRA KLEIN: I always find this very funny in a way. The Congressional Budget Office scored it. They thought it would make about $380 billion in climate investments over a decade. So then you have all these other analyses coming out.

But there’s actually this huge range of outcomes in between where the thing passes, and maybe what you wanted to have happen happens. Maybe it doesn’t. Implementation is where all this rubber meets the road

the Rhodium Group, which is a consulting firm, they think it could be as high as $522 billion, which is a big difference. Then there’s this Goldman Sachs estimate, which the administration loves, where they say they’re projecting $1.2 trillion in incentives —

ROBINSON MEYER: All the numbers differ because most of the important incentives, most of the important tax credits and subsidies in the I.R.A., are uncapped. There’s no limit to how much the government might spend on them. All that matters is that some private citizen or firm or organization come to the government and is like, hey, we did this. You said you’d give us money for it. Give us the money.

because of that, different banks have their own energy system models, their own models of the economy. Different research groups have their own models.

we know it’s going to be wrong because the Congressional Budget Office is actually quite constrained in how it can predict how these tax credits are taken up. And it’s constrained by the technology that’s out there in the country right now.

The C.B.O. can only look at the number of electrolyzers, kind of the existing hydrogen infrastructure in the country, and be like, well, they’re probably all going to use these tax credits. And so I think they said that there would be about $5 billion of take up for the hydrogen tax credits.

But sometimes money gets allocated, and then costs overrun, and there delays, and you can’t get the permits, and so on, and the thing never gets built

the fact that the estimates are going up is to them early evidence that this is going well. There is a lot of applications. People want the tax credits. They want to build these new factories, et cetera.

a huge fallacy that we make in policy all the time is assuming that once money is allocated for something, you get the thing you’re allocating the money for. Noah Smith, the economics writer, likes to call this checkism, that money equals stuff.

EZRA KLEIN: They do not want that, and not wanting that and putting every application through a level of scrutiny high enough to try and make sure you don’t have another one

I don’t think people think a lot about who is cutting these checks, but a lot of it is happening in this very obscure office of the Department of Energy, the Loan Program Office, which has gone from having $40 billion in lending authority, which is already a big boost over it not existing a couple decades ago, to $400 billion in loan authority,

the Loan Program Office as one of the best places we have data on how this is going right now and one of the offices that’s responded fastest to the I.R.A.

the Loan Program Office is basically the Department of Energy’s in-house bank, and it’s kind of the closest thing we have in the US to what exists in other countries, like Germany, which is a State development bank that funds projects that are eventually going to be profitable.

It has existed for some time. I mean, at first, it kind of was first to play after the Recovery Act of 2009. And in fact, early in its life, it gave a very important loan to Tesla. It gave this almost bridge loan to Tesla that helped Tesla build up manufacturing capacity, and it got Tesla to where it is today.

EZRA KLEIN: It’s because one of the questions I have about that office and that you see in some of the coverage of them is they’re very afraid of having another Solyndra.

Now, depending on other numbers, including the D.O.E., it’s potentially as high as $100 billion, but that’s because the whole thing about the I.R.A. is it’s meant to encourage the build-out of this hydrogen infrastructure.

EZRA KLEIN: I’m never that excited when I see a government loans program turning a profit because I think that tends to mean they’re not making risky enough loans. The point of the government should be to bear quite a bit of risk —

And to some degree, Ford now has to compete, and US automakers are trying to catch up with Chinese EV automakers. And its firms have EV battery technology especially, but just have kind of comprehensive understanding of the EV supply chain that no other countries’ companies have

ROBINSON MEYER: You’re absolutely right that this is the key question. They gave this $9.2 billion loan to Ford to build these EV battery plants in Kentucky and Tennessee. It’s the largest loan in the office’s history. It actually means that the investment in these factories is going to be entirely covered by the government, which is great for Ford and great for our build-out of EVs

And to some degree, I should say, one of the roles of L.P.O. and one of the roles of any kind of State development bank, right, is to loan to these big factory projects that, yes, may eventually be profitable, may, in fact, assuredly be profitable, but just aren’t there yet or need financing that the private market can’t provide. That being said, they have moved very slowly, I think.

And they feel like they’re moving quickly. They just got out new guidelines that are supposed to streamline a lot of this. Their core programs, they just redefined and streamlined in the name of speeding them up

However, so far, L.P.O. has been quite slow in getting out new loans

I want to say that the pressure they’re under is very real. Solyndra was a disaster for the Department of Energy. Whether that was fair or not fair, there’s a real fear that if you make a couple bad loans that go bad in a big way, you will destroy the political support for this program, and the money will be clawed back, a future Republican administration will wreck the office, whatever it might be. So this is not an easy call.

when you tell me they just made the biggest loan in their history to Ford, I’m not saying you shouldn’t lend any money to Ford, but when I think of what is the kind of company that cannot raise money on the capital markets, the one that comes to mind is not Ford

They have made loans to a number of more risky companies than Ford, but in addition to speed, do you think they are taking bets on the kinds of companies that need bets? It’s a little bit hard for me to believe that it would have been impossible for Ford to figure out how to finance factorie

ROBINSON MEYER: Now, I guess what I would say about that is that Ford is — let’s go back to why Solyndra failed, right? Solyndra failed because Chinese solar deluged the market. Now, why did Chinese solar deluge the market? Because there’s such support of Chinese financing from the state for massive solar factories and massive scale.

EZRA KLEIN: — the private market can’t. So that’s the meta question I’m asking here. In your view, because you’re tracking this much closer than I am, are they too much under the shadow of Solyndra? Are they being too cautious? Are they getting money out fast enough?

ROBINSON MEYER: I think that’s right; that basically, if we think the US should stay competitive and stay as close as it can and not even stay competitive, but catch up with Chinese companies, it is going to require large-scale state support of manufacturing.

EZRA KLEIN: OK, that’s fair. I will say, in general, there’s a constant thing you find reporting on government that people in government feel like they are moving very quickly

EZRA KLEIN: — given the procedural work they have to go through. And they often are moving very quickly compared to what has been done in that respect before, compared to what they have to get over. They are working weekends, they are working nights, and they are still not actually moving that quickly compared to what a VC firm can do or an investment bank or someone else who doesn’t have the weight of congressional oversight committees potentially calling you in and government procurement rules and all the rest of it.

ROBINSON MEYER: I think that’s a theme across the government’s implementation of the I.R.A. right now, is that generally the government feels like it’s moving as fast as it can. And if you look at the Department of Treasury, they feel like we are publishing — basically, the way that most of the I.R.A. subsidies work is that they will eventually be administered by the I.R.S., but first the Department of the Treasury has to write the guidebook for all these subsidies, right?

the law says there’s a very general kind of “here’s thousands of dollars for EVs under this circumstance.” Someone still has to go in and write all the fine print. The Department of Treasury is doing that right now for each tax credit, and they have to do that before anyone can claim that tax credit to the I.R.S. Treasury feels like it’s moving extremely quickly. It basically feels like it’s completely at capacity with these, and it’s sequenced these so it feels like it’s getting out the most important tax credits first.

Private industry feels like we need certainty. It’s almost a year since the law passed, and you haven’t gotten us the domestic content bonus. You haven’t gotten us the community solar bonus. You haven’t gotten us all these things yet.

a theme across the government right now is that the I.R.A. passed. Agencies have to write the regulations for all these tax credits. They feel like they’re moving very quickly, and yet companies feel like they’re not moving fast enough.

that’s how we get to this point where we’re 311 days out from the I.R.A. passing, and you’re like, well, has it made a big difference? And I’m like, well, frankly, wind and solar developers broadly don’t feel like they have the full understanding of all the subsidies they need yet to begin making the massive investments

I think it’s fair to say maybe the biggest bet on that is green hydrogen, if you’re looking in the bill.

We think it’s going to be an important tool in industry. It may be an important tool for storing energy in the power grid. It may be an important tool for anything that needs combustion.

ROBINSON MEYER: Yeah, absolutely. So green hydrogen — and let’s just actually talk about hydrogen broadly as this potential tool in the decarbonization tool kit.

It’s a molecule. It is a very light element, and you can burn it, but it’s not a fossil fuel. And a lot of the importance of hydrogen kind of comes back to that attribute of it.

So when we look at sectors of the economy that are going to be quite hard to decarbonize — and that’s because there is something about fossil fuels chemically that is essential to how that sector works either because they provide combustion heat and steelmaking or because fossil fuels are actually a chemical feedstock where the molecules in the fossil fuel are going into the product or because fossil fuels are so energy dense that you can carry a lot of energy while actually not carrying that much mass — any of those places, that’s where we look at hydrogen as going.

green hydrogen is something new, and the size of the bet is huge. So can you talk about first just what is green hydrogen? Because my understanding of it is spotty.

The I.R.A. is extremely generous — like extremely, extremely generous — in its hydrogen subsidies

The first is for what’s called blue hydrogen, which is hydrogen made from natural gas, where we then capture the carbon dioxide that was released from that process and pump it back into the ground. That’s one thing that’s subsidized. It’s basically subsidized as part of this broader set of packages targeted at carbon capture

green hydrogen, which is where we take water, use electrolyzers on it, basically zap it apart, take the hydrogen from the water, and then use that as a fue

The I.R.A. subsidies for green hydrogen specifically, which is the one with water and electricity, are so generous that relatively immediately, it’s going to have a negative cost to make green hydrogen. It will cost less than $0 to make green hydrogen. The government’s going to fully cover the cost of producing it.

That is intentional because what needs to happen now is that green hydrogen moves into places where we’re using natural gas, other places in the industrial economy, and it needs to be price competitive with those things, with natural gas, for instance. And so as it kind of is transported, it’s going to cost money

As you make the investment to replace the technology, it’s going to cost money. And so as the hydrogen moves through the system, it’s going to wind up being price competitive with natural gas, but the subsidies in the bill are so generous that hydrogen will cost less than $0 to make a kilogram of it

There seems to be a sense that hydrogen, green hydrogen, is something we sort of know how to make, but we don’t know how to make it cost competitive yet. We don’t know how to infuse it into all the processes that we need to be infused into. And so a place where the I.R.A. is trying to create a reality that does not yet exist is a reality where green hydrogen is widely used, we have to know how to use it, et cetera.

And they just seem to think we don’t. And so you need all these factories. You need all this innovation. Like, they have to create a whole innovation and supply chain almost from scratch. Is that right?

ROBINSON MEYER: That’s exactly right. There’s a great Department of Energy report that I would actually recommend anyone interested in this read called “The Liftoff Report for Clean Hydrogen.” They made it for a few other technologies. It’s a hundred-page book that’s basically how the D.O.E. believes we’re going to build out a clean hydrogen economy.

And, of course, that is policy in its own right because the D.O.E. is saying, here is the years we’re going to invest to have certain infrastructure come online. Here’s what we think we need. That’s kind of a signal to industry that everyone should plan around those years as well.

It’s a great book. It’s like the best piece of industrial policy I’ve actually seen from the government at all. But one of the points it makes is that you’re going to make green hydrogen. You’re then going to need to move it. You’re going to need to move it in a pipeline or maybe a truck or maybe in storage tanks that you then cart around.

Once it gets to a facility that uses green hydrogen, you’re going to need to store some green hydrogen there in storage tanks on site because you basically need kind of a backup supply in case your main supply fails. All of those things are going to add cost to hydrogen. And not only are they going to add cost, we don’t really know how to do them. We have very few pipelines that are hydrogen ready.

All of that investment needs to happen as a result to make the green hydrogen economy come alive. And why it’s so lavishly subsidized is to kind of fund all that downstream investment that’s eventually going to make the economy come true.

But a lot of what has to happen here, including once the money is given out, is that things we do know how to build get built, and they get built really fast, and they get built at this crazy scale.

So I’ve been reading this paper on what they call “The Greens’ Dilemma” by J.B. Ruhl and James Salzman, who also wrote this paper called “Old Green Laws, New Green Deal,” or something like that. And I think they get at the scale problem here really well.

“The largest solar facility currently online in the US is capable of generating 585 megawatts. To meet even a middle-road renewable energy scenario would require bringing online two new 400-megawatt solar power facilities, each taking up at least 2,000 acres of land every week for the next 30 years.”

And that’s just solar. We’re not talking wind there. We’re not talking any of the other stuff we’ve discussed here, transmission lines. Can we do that? Do we have that capacity?

ROBINSON MEYER: No, we do not. We absolutely do not. I think we’re going to build a ton of wind and solar. We do not right now have the system set up to use that much land to build that much new solar and wind by the time that we need to build it. I think it is partially because of permitting laws, and I think it’s also partially because right now there is no master plan

There’s no overarching strategic entity in the government that’s saying, how do we get from all these subsidies in the I.R.A. to net zero? What is our actual plan to get from where we are right now to where we’re emitting zero carbon as an economy? And without that function, no project is essential. No activity that we do absolutely needs to happen, and so therefore everything just kind of proceeds along at a convenient pace.

given the scale of what’s being attempted here, you might think that something the I.R.A. does is to have some entity in the government, as you’re saying, say, OK, we need this many solar farms. This is where we think we should put them. Let’s find some people to build them, or let’s build them ourselves.

what it actually does is there’s an office somewhere waiting for private companies to send in an application for a tax credit for solar that they say they’re going to build, and then we hope they build it

it’s an almost entirely passive process on the part of the government. Entirely would be going too far because I do think they talk to people, and they’re having conversations

the builder applies, not the government plans. Is that accurate?

ROBINSON MEYER: That’s correct. Yes.

ROBINSON MEYER: I think here’s what I would say, and this gets back to what do we want the I.R.A. to do and what are our expectations for the I.R.A

If the I.R.A. exists to build out a ton of green capacity and shift the political economy of the country toward being less dominated by fossil fuels and more dominated by the clean energy industry, frankly, then it is working

If the I.R.A. is meant to get us all the way to net zero, then it is not capable of that.

in 2022, right, we had no way to see how we were going to reduce emissions. We did not know if we were going to get a climate bill at all. Now, we have this really aggressive climate bill, and we’re like, oh, is this going to get us to net zero?

But getting to net zero was not even a possibility in 2022.

The issue is that the I.R.A. requires, ultimately, private actors to come forward and do these things. And as more and more renewables get onto the grid, almost mechanically, there’s going to be less interest in bringing the final pieces of decarbonized electricity infrastructure onto the grid as well.

EZRA KLEIN: Because the first things that get applied for are the ones that are more obviously profitable

The issue is when you talk to solar developers, they don’t see it like, “Am I going to make a ton of money, yes or no?” They see it like they have a capital stack, and they have certain incentives and certain ways to make money based off certain things they can do. And as more and more solar gets on the grid, building solar at all becomes less profitable

also, just generally, there’s less people willing to buy the solar.

as we get closer to a zero-carbon grid, there is this risk that basically less and less gets built because it will become less and less profitable

EZRA KLEIN: Let’s call that the last 20 percent risk

EZRA KLEIN: — or the last 40 percent. I mean, you can probably attach different numbers to that

ROBINSON MEYER: Permitting is the primary thing that is going to hold back any construction basically, especially out West,

right now permitting fights, the process under the National Environmental Policy Act just at the federal level, can take 4.5 years

let’s say every single project we need to do was applied for today, which is not true — those projects have not yet been applied for — they would be approved under the current permitting schedule in 2027.

ROBINSON MEYER: That’s before they get built.

Basically nobody on the left talked about permitting five years ago. I don’t want to say literally nobody, but you weren’t hearing it, including in the climate discussion.

people have moved to saying we do not have the laws, right, the permitting laws, the procurement laws to do this at the speed we’re promising, and we need to fix that. And then what you’re seeing them propose is kind of tweak oriented,

Permitting reform could mean a lot of different things, and Democrats and Republicans have different ideas about what it could mean. Environmental groups, within themselves, have different ideas about what it could mean.

for many environmental groups, the permitting process is their main tool. It is how they do the good that they see themselves doing in the world. They use the permitting process to slow down fossil fuel projects, to slow down projects that they see as harming local communities or the local environment.

ROBINSON MEYER: So we talk about the National Environmental Policy Act or NEPA. Let’s just start calling it NEPA. We talk about the NEPA process

NEPA requires the government basically study any environmental impact from a project or from a decision or from a big rule that could occur.

Any giant project in the United States goes through this NEPA process. The federal government studies what the environmental impact of the project will be. Then it makes a decision about whether to approve the project. That decision has nothing to do with the study. Now, notionally, the study is supposed to inform the project.

the decision the federal government makes, the actual “can you build this, yes or no,” legally has no connection to the study. But it must conduct the study in order to make that decision.

that permitting reform is so tough for the Democratic coalition specifically is that this process of forcing the government to amend its studies of the environmental impact of various decisions is the main tool that environmental litigation groups like Earthjustice use to slow down fossil fuel projects and use to slow down large-scale chemical or industrial projects that they don’t think should happen.

when we talk about making this program faster, and when we talk about making it more immune to litigation, they see it as we’re going to take away their main tools to fight fossil fuel infrastructure

why there’s this gap between rhetoric and what’s actually being proposed is that the same tool that is slowing down the green build-out is also what’s slowing down the fossil fuel build-out

ROBINSON MEYER: They’re the classic conflict here between the environmental movement classic, let’s call it, which was “think globally, act locally,” which said “we’re going to do everything we can to preserve the local environment,” and what the environmental movement and the climate movement, let’s say, needs to do today, which is think globally, act with an eye to what we need globally as well, which is, in some cases, maybe welcome projects that may slightly reduce local environmental quality or may seem to reduce local environmental quality in the name of a decarbonized world.

Because if we fill the atmosphere with carbon, nobody’s going to get a good environment.

Michael Gerrard, who is professor at Columbia Law School. He’s a founder of the Sabin Center for Climate Change Law there. It’s called “A Time for Triage,” and he has this sort of interesting argument that the environmental movement in general, in his view, is engaged in something he calls trade-off denial.

his view and the view of some people is that, look, the climate crisis is so bad that we just have to make those choices. We have to do things we would not have wanted to do to preserve something like the climate in which not just human civilization, but this sort of animal ecosystem, has emerged. But that’s hard, and who gets to decide which trade-offs to make?

what you’re not really seeing — not really, I would say, from the administration, even though they have some principles now; not really from California, though Gavin Newsom has a set of early things — is “this is what we think we need to make the I.R.A. happen on time, and this is how we’re going to decide what is a kind of project that gets this speedway through,” w

there’s a failure on the part of, let’s say, the environmental coalition writ large to have the courage to have this conversation and to sit down at a table and be like, “OK, we know that certain projects aren’t happening fast enough. We know that we need to build out faster. What could we actually do to the laws to be able to construct things faster and to meet our net-zero targets and to let the I.R.A. kind achieve what it could achieve?”

part of the issue is that we’re in this environment where Democrats control the Senate, Republicans control the House, and it feels very unlikely that you could just get “we are going to accelerate projects, but only those that are good for climate change,” into the law given that Republicans control the House.

part of the progressive fear here is that the right solutions must recognize climate change. Progressives are very skeptical that there are reforms that are neutral on the existence of climate change and whether we need to build faster to meet those demands that can pass through a Republican-controlled House.

one of the implications of that piece was it was maybe a huge mistake for progressives not to have figured out what they wanted here and could accept here, back when the negotiating partner was Joe Manchin.

Manchin’s bill is basically a set of moderate NEPA reforms and transmission reforms. Democrats, progressives refuse to move on it. Now, I do want to be fair here because I think Democrats absolutely should have seized on that opportunity, because it was the only moment when — we could tell already that Democrats — I mean, Democrats actually, by that moment, had lost the House.

I do want to be fair here that Manchin’s own account of what happened with this bill is that Senate Republicans killed it and that once McConnell failed to negotiate on the bill in December, Manchin’s bill was dead.

EZRA KLEIN: It died in both places.ROBINSON MEYER: It died in both places. I think that’s right.

Republicans already knew they were going to get the House, too, so they had less incentive to play along. Probably the time for this was October.

EZRA KLEIN: But it wasn’t like Democrats were trying to get this one done.

EZRA KLEIN: To your point about this was all coming down to the wire, Manchin could have let the I.R.A. pass many months before this, and they would have had more time to negotiate together, right? The fact that it was associated with Manchin in the way it was was also what made it toxic to progressives, who didn’t want to be held up by him anymore.

What becomes clear by the winter of this year, February, March of this year, is that as Democrats and Republicans begin to talk through this debt-ceiling process where, again, permitting was not the main focus. It was the federal budget. It was an entirely separate political process, basically.

EZRA KLEIN: I would say the core weirdness of the debt-ceiling fight was there was no main focus to it.

EZRA KLEIN: It wasn’t like past ones where it was about the debt. Republicans did some stuff to cut spending. They also wanted to cut spending on the I.R.S., which would increase the debt, right? It was a total mishmash of stuff happening in there.

That alchemy goes into the final debt-ceiling negotiations, which are between principals in Congress and the White House, and what we get is a set of basically the NEPA reforms in Joe Manchin’s bill from last year and the Mountain Valley pipeline, the thing that environmentalists were focused on blocking, and effectively no transmission reforms.

the set of NEPA reforms that were just enacted, that are now in the law, include — basically, the word reasonable has been inserted many times into NEPA. [LAUGHS] So the law, instead of saying the government has to study all environmental impacts, now it has to study reasonable environmental impacts.

this is a kind of climate win — has to study the environmental impacts that could result from not doing a project. The kind of average NEPA environmental impact study today is 500 pages and takes 4.5 years to produce. Under the law now, the government is supposed to hit a page limit of 150 to 300 pages.

there’s a study that’s very well cited by progressives from three professors in Utah who basically say, well, when you look at the National Forest Service, and you look at this 40,000 NEPA decisions, what mostly holds up these NEPA decisions is not like, oh, there’s too many requirements or they had to study too many things that don’t matter. It’s just there wasn’t enough staff and that staffing is primarily the big impediment. And so on the one hand, I think that’s probably accurate in that these are, in some cases — the beast has been starved, and these are very poorly staffed departments

The main progressive demand was just “we must staff it better.”

But if it’s taking you this much staffing and that much time to say something doesn’t apply to you, maybe you have a process problem —ROBINSON MEYER: Yes.EZRA KLEIN: — and you shouldn’t just throw endless resources at a broken process, which brings me — because, again, you can fall into this and never get out — I think, to the bigger critique her

these bills are almost symbolic because there’s so much else happening, and it’s really the way all this interlocks and the number of possible choke points, that if you touch one of them or even you streamline one of them, it doesn’t necessarily get you that f

“All told, over 60 federal permitting programs operate in the infrastructure approval regime, and that is just the federal system. State and local approvals and impact assessments could also apply to any project.”

their view is that under this system, it’s simply not possible to build the amount of decarbonization infrastructure we need at the pace we need it; that no amount of streamlining NEPA or streamlining, in California, CEQA will get you there; that we basically have been operating under what they call an environmental grand bargain dating back to the ’70s, where we built all of these processes to slow things down and to clean up the air and clean up the water.

we accepted this trade-off of slower building, quite a bit slower building, for a cleaner environment. And that was a good trade. It was addressing the problems of that era

now we have the problems of this era, which is we need to unbelievably, rapidly build out decarbonization infrastructure to keep the climate from warming more than we can handle and that we just don’t have a legal regime or anything.

You would need to do a whole new grand bargain for this era. And I’ve not seen that many people say that, but it seems true to me

the role that America had played in the global economy in the ’50s and ’60s where we had a ton of manufacturing, where we were kind of the factory to a world rebuilding from World War II, was no longer tenable and that, also, we wanted to focus on more of these kind of high-wage, what we would now call knowledge economy jobs.That was a large economic transition happening in the ’70s and ’80s, and it dovetailed really nicely with the environmental grand bargain.

At some point, the I.R.A. recognizes that that environmental grand bargain is no longer operative, right, because it says, we’re going to build all this big fiscal fixed infrastructure in the United States, we’re going to become a manufacturing giant again, but there has not been a recognition among either party of what exactly that will mean and what will be required to have it take hold.

It must require a form of on-the-ground, inside-the-fenceline, “at the site of the power plant” pollution control technology. The only way to do that, really, is by requiring carbon capture and requiring the large construction of major industrial infrastructure at many, many coal plants and natural gas plants around the country in order to capture carbon so it doesn’t enter the atmosphere, and so we don’t contribute to climate change. That is what the Supreme Court has ruled. Until that body changes, that is going to be the law.

So the E.P.A. has now, last month, proposed a new rule under the Clean Air Act that is going to require coal plants and some natural gas plants to install carbon capture technology to do basically what the Supreme Court has all but kind of required the E.P.A. to do

the E.P.A. has to demonstrate, in order to kind of make this rule the law and in order to make this rule pass muster with the Supreme Court, that this is tenable, that this is the best available and technologically feasible option

that means you actually have to allow carbon capture facilities to get built and you have to create a legal process that will allow carbon capture facilities to get built. And that means you need to be able to tell a power plant operator that if they capture carbon, there’s a way they can inject it back into the ground, the thing that they’re supposed to do with it.

Well, E.P.A. simultaneously has only approved the kind of well that you need to inject carbon that you’ve captured from a coal factory or a natural gas line back into the ground. It’s called a Class 6 well. The E.P.A. has only ever approved two Class 6 wells. It takes years for the E.P.A. to approve a Class 6 well.

And environmental justice groups really, really oppose these Class 6 wells because they see any carbon capture as an effort to extend the life of the fossil fuel infrastructure

The issue here is that it seems like C.C.S., carbon capture, is going to be essential to how the U.S. decarbonizes. Legally, we have no other choice because of the constraints the Supreme Court has placed on the E.P.A.. At the same time, environmental justice groups, and big green groups to some extent, oppose building out any C.C.S.

to be fair to them, right, they would say there are other ways to decarbonize. That may not be the way we’ve chosen because the politics weren’t there for it, but there are a lot of these groups that believe you could have 100 percent renewables, do not use all that much carbon capture, right? They would have liked to see a different decarbonization path taken too. I’m not sure that path is realistic.

what you do see are environmental groups opposing making it possible to build C.C.S. anywhere in the country at all.

EZRA KLEIN: The only point I’m making here is I think this is where you see a compromise a lot of them didn’t want to make —ROBINSON MEYER: Exactly, yeah.EZRA KLEIN: — which is a decarbonization strategy that actually does extend the life cycle of a lot of fossil fuel infrastructure using carbon capture. And because they never bought onto it, they’re still using the pathway they have to try to block it. The problem is that’s part of the path that’s now been chosen. So if you block it, you just don’t decarbonize. It’s not like you get the 100 percent renewable strategy.

ROBINSON MEYER: Exactly. The bargain that will emerge from that set of actions and that set of coalitional trade-offs is we will simply keep running this, and we will not cap it.

What could be possible is that progressives and Democrats and the E.P.A. turns around and says, “Oh, that’s fine. You can do C.C.S. You just have to cap every single stationary source in the country.” Like, “You want to do C.C.S.? We totally agree. Essential. You must put CSS infrastructure on every power plant, on every factory that burns fossil fuels, on everything.”

If progressives were to do that and were to get it into the law — and there’s nothing the Supreme Court has said, by the way, that would limit progressives from doing that — the upshot would be we shut down a ton more stationary sources and a ton more petrochemical refineries and these bad facilities that groups don’t want than we would under the current plan.

what is effectively going to happen is that way more factories and power plants stay open and uncapped than would be otherwise.

EZRA KLEIN: So Republican-controlled states are just on track to get a lot more of it. So the Rocky Mountain Institute estimates that red states will get $623 billion in investments by 2030 compared to $354 billion for blue states.

why are red states getting so much more of this money?

ROBINSON MEYER: I think there’s two reasons. I think, first of all, red states have been more enthusiastic about getting the money. They’re the ones giving away the tax credits. They have a business-friendly environment. And ultimately, the way many, many of these red-state governors see it is that these are just businesses.

I think the other thing is that these states, many of them, are right-to-work states. And so they might pay their workers less. They certainly face much less risk financially from a unionization campaign in their state.

regardless of the I.R.A., that’s where manufacturing and industrial investment goes in the first place. And that’s where it’s been going for 20 years because of the set of business-friendly and local subsidies and right-to-work policies.

I think the administration would say, we want this to be a big union-led effort. We want it to go to the Great Lakes states that are our political firewall.

and it would go to red states, because that’s where private industry has been locating since the ’70s and ’80s, and it would go to the Southeast, right, and the Sunbelt, and that that wouldn’t be so bad because then you would get a dynamic where red-state senators, red-state representatives, red-state governors would want to support the transition further and would certainly not support the repeal of the I.R.A. provisions and the repeal of climate provisions, and that you’d get this kind of nice vortex of the investment goes to red states, red states feel less antagonistic toward climate policies, more investment goes to red states. Red-state governors might even begin to support environmental regulation because that basically locks in benefits and advantages to the companies located in their states already.

I think what you see is that Republicans are increasingly warming to EV investment, and it’s actually building out renewables and actually building out clean electricity generation, where you see them fighting harder.

The other way that permitting matters — and this gets into the broader reason why private investment was generally going to red states and generally going to the Sunbelt — is that the Sunbelt states — Georgia, Texas — it’s easier to be there as a company because housing costs are lower and because the cost of living is lower in those states.

it’s also partially because the Sunbelt and the Southeast, it was like the last part of the country to develop, frankly, and there’s just a ton more land around all the cities, and so you can get away with the sprawling suburban growth model in those citie

It’s just cheaper to keep building suburbs there.

EZRA KLEIN: So how are you seeing the fights over these rare-earth metals and the effort to build a safe and, if not domestic, kind of friend-shored supply chain there?

Are we going to be able to source some of these minerals from the U.S.? That process seems to be proceeding but going slowly. There are some minerals we’re not going to be able to get from the United States at all and are going to have to get from our allies and partners across the world.

The kind of open question there is what exactly is the bargain we’re going to strike with countries that have these critical minerals, and will it be fair to those countries?

it isn’t to say that I think the I.R.A. on net is going to be bad for other countries. I just think we haven’t really figured out what deal and even what mechanisms we can use across the government to strike deals with other countries to mine the minerals in those countries while being fair and just and creating the kind of economic arrangement that those countries want.

, let’s say we get the minerals. Let’s say we learn how to refine them. There is many parts of the battery and many parts of EVs and many, many subcomponents in these green systems that there’s not as strong incentive to produce in the U.S.

at the same time, there’s a ton of technology. One answer to that might be to say, OK, well, what the federal government should do is just make it illegal for any of these battery makers or any of these EV companies to work with Chinese companies, so then we’ll definitely establish this parallel supply chain. We’ll learn how to make cathodes and anodes. We’ll figure it out

The issue is that there’s technology on the frontier that only Chinese companies have, and U.S. automakers need to work with those companies in order to be able to compete with them eventually.

EZRA KLEIN: How much easier would it be to achieve the I.R.A.’s goals if America’s relationship with China was more like its relationship with Germany?

ROBINSON MEYER: It would be significantly easier, and I think we’d view this entire challenge very differently, because China, as you said, not only is a leader in renewable energy. It actually made a lot of the important technological gains over the past 15 years to reducing the cost of solar and wind. It really did play a huge role on the supply side of reducing the cost of these technologies.

If we could approach that, if China were like Germany, if China were like Japan, and we could say, “Oh, this is great. China’s just going to make all these things. Our friend, China, is just going to make all these technologies, and we’re going to import them.

So it refines 75 percent of the polysilicon that you need for solar, but the machines that do the refining, 99 percent of them are made in China. I think it would be reckless for the U.S. to kind of rely on a single country and for the world to rely on a single country to produce the technologies that we need for decarbonization and unwise, regardless of our relationship with that country.

We want to geographically diversify the supply chain more, but it would be significantly easier if we did not have to also factor into this the possibility that the US is going to need to have an entirely separate supply chain to make use of for EVs, solar panels, wind turbines, batteries potentially in the near-term future.

, what are three other books they should read?

The first book is called “The End of the World” by Peter Brannen. It’s a book that’s a history of mass extinctions, the Earth’s five mass extinctions, and, actually, why he doesn’t think we’re currently in a mass extinction or why, at least, things would need to go just as bad as they are right now for thousands and thousands of years for us to be in basically the sixth extinction.

The book’s amazing for two reasons. The first is that it is the first that really got me to understand deep time.

he explains how one kind of triggered the next one. It is also an amazing book for understanding the centrality of carbon to Earth’s geological history going as far back as, basically, we can track.

“Climate Shock” by Gernot Wagner and Marty Weitzman. It’s about the economics of climate change

Marty Weitzman, who I think, until recently, was kind of the also-ran important economist of climate change. Nordhaus was the famous economist. He was the one who got all attention. He’s the one who won the Nobel.

He focuses on risk and that climate change is specifically bad because it will damage the environment, because it will make our lives worse, but it’s really specifically bad because we don’t know how bad it will be

it imposes all these huge, high end-tail risks and that blocking those tail risks is actually the main thing we want to do with climate policy.

That is I think, in some ways, what has become the U.S. approach to climate change and, to some degree, to the underlying economic thinking that drives even the I.R.A., where we want to just cut off these high-end mega warming scenarios. And this is a fantastic explanation of that particular way of thinking and of how to apply that way of thinking to climate change and also to geoengineerin

The third book, a little controversial, is called “Shorting the Grid” by Meredith Angwin

her argument is basically that electricity markets are not the right structure to organize our electricity system, and because we have chosen markets as a structured, organized electricity system in many states, we’re giving preferential treatment to natural gas and renewables, two fuels that I think climate activists may feel very different ways about, instead of coal, which she does think we should phase out, and, really, nuclear

By making it easier for renewables and natural gas to kind of accept these side payments, we made them much more profitable and therefore encouraged people to build more of them and therefore underinvested in the forms of generation, such as nuclear, that actually make most of their money by selling electrons to the grid, where they go to people’s homes.

The very reasons that we know something about Auschwitz warp our understanding of the Holocaust: we know about Auschwitz because there were survivors, and there were survivors because Auschwitz was a labor camp as well as a death factory. These survivors were largely West European Jews, because Auschwitz is where West European Jews were usually sent. After World War II, West European Jewish survivors were free to write and publish as they liked, whereas East European Jewish survivors, if caught behind the iron curtain, could not. In the West, memoirs of the Holocaust could (although very slowly) enter into historical writing and public consciousness.

By 1943 and 1944, when most of the killing of West European Jews took place, the Holocaust was in considerable measure complete. Two thirds of the Jews who would be killed during the war were already dead by the end of 1942. The main victims, the Polish and Soviet Jews, had been killed by bullets fired over death pits or by carbon monoxide from internal combustion engines pumped into gas chambers at Treblinka, Be zec, and Sobibor in occupied Poland.

The Germans killed somewhat more than ten million civilians in the major mass killing actions, about half of them Jews, about half of them non-Jews. The Jews and the non-Jews mostly came from the same part of Europe. The project to kill all Jews was substantially realized; the project to destroy Slavic populations was only very partially implemented.

In shorthand, then, the Holocaust was, in order: Operation Reinhardt, Shoah by bullets, Auschwitz; or Poland, the Soviet Union, the rest. Of the 5.7 million or so Jews killed, roughly 3 million were pre-war Polish citizens, and another 1 million or so pre-war Soviet citizens: taken together, 70 percent of the total. (After the Polish and Soviet Jews, the next-largest groups of Jews killed were Romanian, Hungarian, and Czechoslovak. If these people are considered, the East European character of the Holocaust becomes even clearer.)

The Final Solution, as the Nazis called it, was originally only one of the exterminatory projects to be implemented after a victorious war against the Soviet Union. Had things gone the way that Hitler, Himmler, and Göring expected, German forces would have implemented a Hunger Plan in the Soviet Union in the winter of 1941–1942. As Ukrainian and south Russian agricultural products were diverted to Germany, some 30 million people in Belarus, northern Russia, and Soviet cities were to be starved to death. The Hunger Plan was only a prelude to Generalplan Ost, the colonization plan for the western Soviet Union, which foresaw the elimination of some 50 million people.

The Germans did manage to carry out policies that bore some resemblance to these plans

the other state that killed Europeans en masse in the middle of the century: the Soviet Union. In the entire Stalinist period, between 1928 and 1953, Soviet policies killed, in a conservative estimate, well over five million Europeans

German suffering under Hitler and during the war, though dreadful in scale, does not figure at the center of the history of mass killing. Even if the ethnic Germans killed during flight from the Red Army, expulsion from Poland and Czechoslovakia in 1945–1947, and the firebombings in Germany are included, the total number of German civilians killed by state power remains comparatively small

when one considers the total number of European civilians killed by totalitarian powers in the middle of the twentieth century, one should have in mind three groups of roughly equal size: Jews killed by Germans, non-Jews killed by Germans, and Soviet citizens killed by the Soviet state.

Soviet repressions are identified with the Gulag

We know about the Gulag because it was a system of labor camps, but not a set of killing facilities. The Gulag held about 30 million people and shortened some three million lives. But a vast majority of those people who were sent to the camps returned alive.

the Gulag distracts us from the Soviet policies that killed people directly and purposefully, by starvation and bullets. Of the Stalinist killing policies, two were the most significant: the collectivization famines of 1930–1933 and the Great Terror of 1937–1938.

It is established beyond reasonable doubt that Stalin intentionally starved to death Soviet Ukrainians in the winter of 1932–1933. Soviet documents reveal a series of orders of October–December 1932 with evident malice and intention to kill. By the end, more than three million inhabitants of Soviet Ukraine had died.

The largest action of the Great Terror, Operation 00447, was aimed chiefly at “kulaks,” which is to say peasants who had already been oppressed during collectivization. It claimed 386,798 lives. A few national minorities, representing together less than 2 percent of the Soviet population, yielded more than a third of the fatalities of the Great Terror.

If we concentrate on Auschwitz and the Gulag, we fail to notice that over a period of twelve years, between 1933 and 1944, some 12 million victims of Nazi and Soviet mass killing policies perished in a particular region of Europe, one defined more or less by today’s Belarus, Ukraine, Poland, Lithuania, and Latvia.

mass killing happened, predominantly, in the parts of Europe between Germany and Russia, not in Germany and Russia themselves.

An adequate vision of the Holocaust would place Operation Reinhardt, the murder of the Polish Jews in 1942, at the center of its history. Polish Jews were the largest Jewish community in the world, Warsaw the most important Jewish city. This community was exterminated at Treblinka, Be zec, and Sobibor. Some 1.5 million Jews were killed at those three facilities, about 780,863 at Treblinka alone. Only a few dozen people survived these three death facilities. Be zec, though the third most important killing site of the Holocaust, after Auschwitz and Treblinka, is hardly known. Some 434,508 Jews perished at that death factory, and only two or three survived.

During the war, many Soviet Russians were killed by the Germans, but far fewer proportionately than Belarusians and Ukrainians, not to mention Jews. Soviet civilian deaths are estimated at about 15 million. About one in twenty-five civilians in Russia was killed by the Germans during the war, as opposed to about one in ten in Ukraine (or Poland) or about one in five in Belarus.

Poland was attacked and occupied not by one but by both totalitarian states between 1939 and 1941, as Nazi Germany and the Soviet Union, then allies, exploited its territories and exterminated much of its intelligentsia at that time. Poland’s capital was the site of not one but two of the major uprisings against German power during World War II: the ghetto uprising of Warsaw Jews in 1943, after which the ghetto was leveled; and the Warsaw Uprising of the Polish Home Army in 1944, after which the rest of the city was destroyed.

By starving Soviet prisoners of war, shooting and gassing Jews, and shooting civilians in anti-partisan actions, German forces made Belarus the deadliest place in the world between 1941 and 1944. Half of the population of Soviet Belarus was either killed or forcibly displaced during World War II: nothing of the kind can be said of any other European country.

Although the history of mass killing has much to do with economic calculation, memory shuns anything that might seem to make murder appear rational. Both Nazi Germany and the Soviet Union followed a path to economic self-sufficiency, Germany wishing to balance industry with an agrarian utopia in the East, the USSR wishing to overcome its agrarian backwardness with rapid industrialization and urbanization. Both regimes were aiming for economic autarky in a large empire, in which both sought to control Eastern Europe. Both of them saw the Polish state as a historical aberration; both saw Ukraine and its rich soil as indispensable. They defined different groups as the enemies of their designs, although the German plan to kill every Jew is unmatched by any Soviet policy in the totality of its aims. What is crucial is that the ideology that legitimated mass death was also a vision of economic develop-ment. In a world of scarcity, particularly of food supplies, both regimes integrated mass murder with economic planning.

If there is a general political lesson of the history of mass killing, it is the need to be wary of what might be called privileged development: attempts by states to realize a form of economic expansion that designates victims, that motivates prosperity by mortality. The possibility cannot be excluded that the murder of one group can benefit another, or at least can be seen to do so. That is a version of politics that Europe has in fact witnessed and may witness again. The only sufficient answer is an ethical commitment to the individual, such that the individual counts in life rather than in death, and schemes of this sort become unthinkable.

Austria refused to recognize Philip, a Bourbon

a Bourbon king in Spain would disrupt the balance of power in Europe in favour of French hegemony

Spain under a Bourbon king as a political and commercial appendage of France

He wished to regenerate and strengthen his ally by a modern centralized administration

the allied armies of Britain and Austria invaded Spain in order to drive out Philip V and establish the “Austrian” candidate, the archduke Charles (later the Holy Roman emperor Charles VI), on the throne

An efficient administration had to be created in order to extract resources from Spain for the war effort and thus relieve pressure on the French treasury

Castile was ferociously loyal to the new dynasty throughout the war. The support of Castile and of France (until 1711) enabled Philip V to survive severe defeats

Spanish lawyer-administrators such as Melchor de Macanaz

They were supported by the queen, María Luisa of Savoy

The opponents of reform were those who suffered by it

Catalonia, Aragon, and Valencia

a Castilian centralizing imposition in conflict with the local privileges, or fueros

the church, whose position was threatened by the ferocious and doctrinaire regalism of Macanaz

The disaffection of all these elements easily turned into opposition to Philip V as king

war taxation and war levies drove Catalonia and Aragon to revolt

When Philip V tried to attack Catalonia through Aragon, the Aragonese, in the name of their fueros, revolted against the passage of Castilian troops

When the archbishop of Valencia resisted attempts to make priests of doubtful loyalty appear before civil courts, the regalism of Macanaz was given full course

This was the last direct triumph of the reformers. With the death of Queen María Luisa in 1714

Macanaz was condemned by the Inquisition

the fueros were abolished and Catalonia was integrated into Spain

The “Italian” tendency was influenced by Philip V’s second wife, Isabella, and her desire to get Italian thrones for her sons.

The attempt to recover the possessions in Italy involved Spain in an unsuccessful war with Austria, which was now the great power in Italy

Nevertheless, Isabella’s persistence was rewarded when her son, the future King Charles III of Spain, became the duke of Parma in 1731 and king of Naples in 1733, relinquishing his claims to Parma

The “Italian” and “Atlantic” tendencies existed side by side in the late years of Philip V’s reign

It made possible an alliance of France and Spain against Austria, giving Isabella the opportunity to settle her second son, Philip, in an Italian duchy

Ferdinand VI (1746–59) was concerned with the domestic recovery of Spain rather than the extension of its power in Europe

the treaty merely strengthened Spain’s position in Italy when Philip became duke of Parma, Piacenza, and Guastalla. The Atlantic tendency became dominant under Ferdinand VI

Because Britain was Spain’s most significant enemy in the Americas (as Austria had been in Italy), Spain’s “natural” ally was France

hence a series of family pacts with France in 1733 and 1743

The American interest was reflected in increased trade

Charles III, Ferdinand’s successor, implemented dramatic reforms that followed along the path set by Ferdinand.

If those effects were repeated in Medicaid, it could prove disastrous for the health of the program’s beneficiaries. Especially in states that expanded Medicaid under Obamacare, work requirements could create a new underclass of people ineligible for any health insurance. That includes a large contingent of people with disabilities who don’t qualify for Supplemental Security Income and vulnerable populations like young men with felonies. Caught in a vicious cycle, those people would then be less healthy and less financially secure, and thus less likely to be able to work and make it out of poverty

Such a program would have its most drastic effects on wages, productivity, and reducing racial and class-based wealth inequality if it were implemented as a universal program. But it could probably achieve CMS’s goals of long-term health benefits and poverty reduction if it were instituted solely for current Medicaid beneficiaries. If the 4.4 million non-elderly adults who aren’t working; aren’t caregivers, retired, or students; and don’t qualify for disability insurance are used as a floor, providing jobs for them would cost a little more than Lowrey’s total of $158 billion, around 30 percent of Medicaid’s annual budget of over $550 billion. If people who self-report as ill or disabled are excluded from that number, Medicaid would need to pay for a maximum of 880,000 jobs, or $35 billion a year, 6 percent of the annual Medicaid budget.

A Medicaid jobs guarantee could serve to amplify both of those roles. It could essentially set a wage floor for Medicaid enrollees, who often work near the bottom of the wage scale and often barely crack the poverty line even while working full-time hours (or more). Integrating Medicaid into bespoke job structures for people with disabilities could provide transportation and rehabilitation, and further increase the accessibility of those positions, thus creating more synergy between health and employment.

Similar to how employer-sponsored insurance has become a backbone to the economic growth of the middle class, a jobs guarantee for Medicaid would take the largest health-insurance program in America and transform it into a nexus of anti-poverty policy and health equity. Put more simply: The easiest way to make sure people receive the health benefits of employment could be to employ them.

While Maria Theresa regarded Protestants as heretics and Jews as the embodiment of the Antichrist

Joseph’s most radical measures in church matters were the Edict of Toleration (1781) and his monastic reforms.

When Joseph became sole ruler, he was determined to implement his own policies

To add to the Hungarians’ horror, Joseph refused to submit to a coronation in Hungary lest he have to swear to uphold laws that he did not wish to, and then he had the sacred crown of the kingdom moved to Vienna.

Toward the end of Joseph’s reign, there was indeed increasing dissatisfaction. Religious elements were unhappy with many of his reforms

Another of Joseph’s famous reforms was the abolition of serfdom, which was not quite a total abolition but certainly changed considerably the status of the peasants.

By 1787 resistance to Joseph and his government was intensifying. One Habsburg possession that had escaped reforms during the reign of Maria Theresa and Joseph was the Austrian Netherlands,

Joseph’s reforms might not have generated as much opposition had it not been for his foreign policy.

Kaunitz firmly believed that Austria could check Prussia only with the help of Russia. Consequently, in 1781 he and Joseph negotiated with Catherine the Great a pact that provided for Russian help for Austria in case of war with Prussia

In exchange, Austria promised to help Russia in case of war with the Ottoman Empire.

Catherine then engaged in a series of provocations toward the Turks that resulted in 1787 in a declaration of war by the sultan. Although Joseph had no real desire to participate in this war, his treaty obligations with Russia required him to do so

In 1788 the Austrians waited for the Russians to take the offensive in Romanian lands—which they failed to do—only to be themselves attacked by the Turks and sent scurrying north from the Danube in an effort to reconsolidate their lines

Faced with these difficulties, Joseph revoked many of the reforms that he had enacted earlier

he consented to return the crown to Hungary and to his own coronation as that country’s king. The crowning never came to pass, however, for Joseph died the following month.

the power of the first consul was so well established that there was no hope of intervening in France. Instead, the house of Orléans became reconciled with the elder branch of the Bourbon family. Even so, Louis-Philippe never took up arms to fight with émigré forces for the royalist cause against other Frenchmen

On November 25 he married Marie-Amélie, a daughter of King Ferdinand IV of Naples and Maria Carolina of Austria. About this time there was some suggestion that Louis-Philippe should join the English forces in the Peninsular War. Maria Carolina—who held the real power in Naples and whose sister Marie-Antoinette had been executed by the French Revolutionary government—had long backed the campaign against the Revolutionary armies and Napoleon. She certainly would have supported such a move by her son-in-law, but nothing came of it, probably because Louis XVIII again feared any activity that might further the Orleanist cause.

Louis-Philippe returned to France at the First Restoration (1814). Although Louis XVIII refused to grant Louis-Philippe the style of royal highness (later allowed to him by Charles X), the king did grant Louis-Philippe the dignities traditionally held by the head of his family. More important perhaps, Louis-Philippe regained possession of the family estates and forests that had not been sold after his own emigration and his father’s execution. During the Hundred Days (1815) he returned to England instead of following the court to Ghent.

Under the second Restoration the duc d’Orléans was a steady and more or less open adherent of the liberal opposition

when Louis-Philippe had become king and his eldest son, Ferdinand-Louis-Philippe, was heir to the royal domain, he could reserve the Orléans inheritance for his other sons instead of merging it with the crown lands.

In 1830 Charles X’s attempt to enforce repressive ordinances touched off a rebellion (July 27–30) that gave Louis-Philippe his long-awaited opportunity to gain power.

The revolution that brought Louis-Philippe to power constituted a victory for the upper bourgeoisie over the aristocracy. The new ruler was titled Louis-Philippe, king of the French, instead of Philip VII, king of France. He consolidated his power by steering a middle course between the right-wing extreme monarchists (the Legitimists) on the one side and the socialists and other republicans (including the Bonapartists) on the other. The July Monarchy, with its “Citizen King,” could never command the support of all the factions, however. Its opponents resorted to political intrigue, insurrection, and even assassination plots. In July 1835 an attempt on the king’s life by Giuseppe Fieschi resulted in the deaths of 18 people and the wounding of many more, but the royal family escaped injury. Throughout Louis-Philippe’s reign, it was said that “for shooting kings there is no close[d] season.”

before abdicating in favour of his 10-year-old grandson, Henri Dieudonné d’Artois, comte de Chambord. On August 7 the provisional government of deputies and peers present in Paris declared the throne vacant. Following the terminology of the Constitution of 1791, Louis-Philippe was on August 9 proclaimed “king of the French by the grace of God and the will of the people.” A modified version of the Charter of 1814 was issued, which the new king was obliged to accept.

The death of the popular duc d’Orléans in a carriage accident in July 1842 not only grieved Louis-Philippe very deeply but also seriously weakened the dynasty. The new heir to the throne, the duke’s son Philippe d’Orléans, comte de Paris, was an infant for whom a regency had to be prearranged.

The marriage (August 1832) of his daughter Marie-Louise to Queen Victoria’s uncle Leopold I, king of the Belgians, established an excellent relationship between Paris and London, almost foreshadowing the Entente Cordiale.

The British were finally alienated by Louis-Philippe’s policy on the “Spanish marriages.” In an attempt to revive the traditional family alliance between the French and Spanish Bourbons, he had at first wanted his sons Henri d’Orléans, duc d’Aumale, and Antoine, duc de Montpensier, to marry Spanish Queen Isabella II and her sister and heiress presumptive, the infanta Luisa Fernanda, respectively. The British objected to this obvious threat of French predominance in Spain, and in 1843 Louis-Philippe agreed that Isabella should marry neither Henri nor the British nominee, Prince Albert’s cousin Prince Leopold of Saxe-Coburg, but rather some Spanish Bourbon instead.

French opposition to the regime had become much more embittered. The industrial and agricultural depression of 1846 aroused widespread popular discontent, and Louis-Philippe’s constant refusal of any electoral reform meant that many members of the lower middle class—from whom he might still have drawn support—remained without the vote. Finally, his narrow-minded conservatism and his unwillingness to seek any solution for pressing political and social problems drove many divergent interests into union against him.

The July Monarchy was but one casualty of the great revolutionary movement that swept through Europe in 1848. In any case, a change had come to seem unavoidable in France.

The July Monarchy was really an anachronism. To the French people—for whom, whether or not they favoured the institution, monarchy meant the splendours and absolutism of the ancien régime

In power Louis-Philippe strove to implement his desire to rule as well as to reign. The political difficulties with which he was faced revealed in him the weaknesses of an obstinate man; increasingly, his only response to crises was words and theories, and ultimately inaction lost him his crown.

we can’t simply replace one simplistic narrative, about the super power of mitigation policy, for another, focused only on the burdens it imposed and not at all on the costs of doing much less — or nothing at all.

Let’s start with the title. What is the big failure, as you see it?

McLean: I think it gets at things that had happened in America even before the pandemic hit. And among those things were, I think, a failure to recognize the limits of capitalism, a failure of government to set the right rules for it, particularly when it comes to our health care system; a focus on profits that may have led to an increase in the bottom line but created fragility in ways people didn’t understand; and then our growing polarization that made us incapable of talking to each other

How big is the failure? When I look at The Economist’s excess mortality data, I see the U.S. had the 53rd-worst outcome in the world — worse than all of Western Europe, but better than all of Eastern Europe.

McLean: I think one way to quantify it is to take all those numbers and then put them in the context of our spending on health care. Given the amount we spend on health care relative to other countries, the scale of the failure becomes more apparent.

o me, the most glaring example is the schools. They were closed without people thinking through the potential consequences of closing down public schools, especially for disadvantaged kids.

to compound it, in my view, public health never made the distinction that needed to be made between the vulnerabilities of somebody 70 years old and the vulnerabilities of somebody 10 years old.

In the beginning of the book you write, in what almost feels like a thesis statement for the book: “A central tenet of this book is that we could not have done better, and pretending differently is a dangerous fiction, one that prevents us from taking a much needed look in the mirror.”

This claim, that the U.S. could not have done any better, runs against your other claim, that what we observed was an American failure. It is also a pretty extreme claim, I think, and I wanted to press you on it in part because it is, in my view, undermined by quite a lot of the work you do in the book itself.

Would the U.S. not have done better if it had recognized earlier that the disease spread through the air rather than in droplets? Would it not have done better if it hadn’t bungled the rollout of a Covid test in the early months?

McLean: Everything that you mentioned — the point of the book is that those were set by the time the pandemic hit.

in retrospect, what we were doing was to try to delay as much spread as we could until people got vaccinated. All the things that we did in 2020 were functionally serving or trying to serve that purpose. Now, given that, how can you say that none of that work saved lives?

McLean: I think that the test failure was baked into the way that the C.D.C. had come to operate

But the big question I really want to ask is this one: According to the C.D.C., we’ve had almost 1.2 million deaths from Covid. Excess mortality is nearly 1.4 million. Is it really your contention that there was nothing we might’ve done that brought that total down to 1.1 million, for instance, or even 900,000?

McLean: It’s very — you’re right. If you went through each and every thing and had a crystal ball and you could say, this could have been done, this could have been moved up by a month, we could have gotten PPE …

When I came to that sentence, I thought of it in terms of human behavior: What will humans put up with? What will humans stand for? How do Americans act? And you’ve written about Sweden being sort of average, and you’ve written about China and the Chinese example. They lock people up for two years and suddenly the society just revolts. They will not take it anymore. They can’t stand it. And as a result, a million and a half people die in a month and a half.

Well, I would tell that story very differently. For me, the problem is that when China opened up, they had fully vaccinated just under two-thirds of their population over 80. So to me, it’s not a failure of lockdowns. It’s a failure of vaccinations. If the Chinese had only achieved the same elderly vaccination rate as we achieved — which by global standards was pretty poor — that death toll when they opened up would have been dramatically lower.

What do you mean by “lockdown,” though? You use the word throughout the book and suggest that China was the playbook for all countries. But you also acknowledge that what China did is not anything like what America did.

Disparities in health care access — is it a dangerous fiction to think we might address that? You guys are big champions of Operation Warp Speed — would it not have been better if those vaccines had been rolled out to the public in nine months, rather than 12

. But this isn’t “lockdown” like there were lockdowns in China or even Peru. It’s how we tried to make it safer to go out and interact during a pandemic that ultimately killed a million Americans.

McLean: I think that you’re absolutely right to focus on the definition of what a lockdown is and how we implemented them here in this country. And I think part of the problem is that we implemented them in a way that allowed people who were well off and could work from home via Zoom to be able to maintain very much of their lives while other people couldn’t

And I think it depends on who you were, whether you would define this as a lockdown or not. If you were a small business who saw your small business closed because of this, you’re going to define it as a lockdown.

n the book you’re pretty definitive. You write, “maybe the social and economic disasters that lockdowns created would have been worth it if they had saved lives, but they hadn’t.” How can you say that so flatly?

I think there are still open questions about what worked and how much. But the way that I think about all of this is that the most important intervention that anybody did anywhere in the world was vaccination. And the thing that determined outcomes most was whether your first exposure came before or after vaccination.

Here, the shelter-in-place guidelines lasted, on average, five to seven weeks. Thirty nine of the 40 states that had issued them lifted them by the end of June, three months in. By the summer, according to Google mobility data, retail and grocery activity was down about 10 percent. By the fall, grocery activity was only down about 5 percent across the country

Nocera: Well, on some level, I feel like you’re trying to have it both ways. On the one hand, you’re saying that lockdowns saved lives. On the other hand, you said they weren’t real lockdowns because everybody was out and about.

I don’t think that’s having it both ways. I’m trying to think about these issues on a spectrum rather than in binaries. I think we did interrupt our lives — everybody knows that. And I think they did have an effect on spread, and that limiting spread had an effect by delaying infections until after vaccination.

Nocera: Most of the studies that say lockdowns didn’t work are really less about Covid deaths than about excess mortality deaths. I wound up being persuaded that the people who could not get to the hospital, because they were all working, because all the doctors were working on Covid and the surgical rooms were shut down, the people who caught some disease that was not Covid and died as a result — I wound up being persuaded about that.

We’re in a pandemic. People are going to die. And then the question becomes, can we protect the most vulnerable? And the answer is, we didn’t protect the most vulnerable. Nursing homes were a complete disaster.

There was a lot of worry early on about delayed health care, and about cancer in particular — missed screenings, missed treatments. But in 2019, we had an estimated 599,600 Americans die of cancer. In 2020, it was 602,000. In 2021, it was 608,000. In 2022, it was 609,000.

Nocera: See, it went up!But by a couple of thousand people, in years in which hundreds of thousands of Americans were dying of Covid.

Nocera: I think you can’t dispute the excess mortality numbers.I’m not. But in nearly every country in the world the excess mortality curves track so precisely with Covid waves that it doesn’t make sense to talk about a massive public health problem beyond Covid. And when you add all of these numbers up, they are nowhere near the size of the footfall of Covid. How can you look back on this and say the costs were too high?

Nocera: I think the costs were too high because you had school costs, you had economic costs, you had social costs, and you had death.

McLean: I think you’re raising a really good point. We’re making an argument for a policy that might not have been doable given the preconditions that had been set. I’m arguing that there were these things that had been put in place in our country for decades leading up to the pandemic that made it really difficult for us to plant in an effective way, from the outsourcing of our PPE to the distrust in our health care system that had been created by people’s lack of access to health care with the disparities in our hospital system.

How would you have liked to see things handled differently?Nocera: Well, the great example of doing it right is San Fran

I find the San Francisco experience impressive, too. But it was also a city that engaged in quite protracted and aggressive pandemic restrictions, well beyond just protecting the elderly and vulnerable.

McLean: But are we going to go for stay-at-home orders plus protecting vulnerable communities like San Francisco did? Or simply letting everybody live their lives, but with a real focus on the communities and places like nursing homes that were going to be affected? My argument is that we probably would’ve been better off really focusing on protecting those communities which were likely to be the most severely affected.

I agree that the public certainly didn’t appreciate the age skew, and our policy didn’t reflect it either. But I also wonder what it would mean to better protect the vulnerable than we did. We had testing shortages at first. Then we had resistance to rapid testing. We had staff shortages in nursing homes.

Nocera: This gets exactly to one of our core points. We had spent 30 years allowing nursing homes to be owned by private equity firms that cut the staff, that sold the land underneath and added all this debt on

I hear you saying both that we could have done a much better job of protecting these people and that the systems we inherited at the outset of the pandemic would’ve made those measures very difficult, if not impossible, to implement.

But actually, I want to stop you there, because I actually think that that data tells the opposite story.

And then I’m trying to say at the same time, but couldn’t we have done something to have protected people despite all of that?

I want to talk about the number of lives at stake. In the book, you write about the work of British epidemiologist Neil Ferguson. In the winter of 2020, he says that in the absence of mitigation measures and vaccination, 80 percent of the country is going to get infected and 2.2 million Americans are going to die. He says that 80 percent of the U.K. would get infected, and 510,000 Brits would die — again, in the abs

In the end, by the time we got to 80 percent of the country infected, we had more than a million Americans die. We had more than 200,000 Brits die. And in each case most of the infections happened after vaccination, which suggests that if those infections had all happened in a world without vaccines, we almost certainly would have surpassed two million deaths in the U.S. and almost certainly would’ve hit 500,000 deaths in the U.K.

In the book, you write about this estimate, and you endorse Jay Bhattacharya’s criticism of Ferguson’s model. You write, “Bhattacharya got his first taste of the blowback reserved for scientists who strayed from the establishment position early. He co-wrote an article for The Wall Street Journal questioning the validity of the scary 2 to 4 percent fatality rate that the early models like Neil Ferguson’s were estimating and that were causing governments to panic. He believed, correctly as it turns out, that the true fatality rate was much lower.”

Nocera: I know where you’re going with this, because I read your story about the nine pandemic narratives we’re getting wrong. In there, you said that Bhattacharya estimated the fatality rate at 0.01 percent. But if you actually read The Wall Street Journal article, what he’s really saying is I think it’s much lower. I’ve looked at two or three different possibilities, and we really need some major testing to figure out what it actually is, because I think 2 percent to 4 percent is really high.

He says, “if our surmise of 6 million cases is accurate, that’s a mortality rate of 0.01%. That is ⅒th the flu mortality rate of 0.1%.” An I.F.R. of 0.01 percent, spread fully through the American population, yields a total American death toll of 33,000 people. We have had 1.2 million deaths. And you are adjudicating this dispute, in 2023, and saying that Neil was wrong and Jay was right.

hird, in the Imperial College report — the one projecting two million American deaths — Ferguson gives an I.F.R. estimate of 0.9 percent.

Bhattacharya’s? Yes, there is some uncertainty around the estimate he offers. But the estimate he does offer — 0.01 percent — is one hundred times lower than the I.F.R. you yourselves cite as the proper benchmark.

Nocera: In The Wall Street Journal he does not say it’s 0.01. He says, we need to test to find out what it is, but it is definitely lower than 2 to 4 percent.

Well, first of all, the 2 percent to 4 percent fatality rate is not from Neil Ferguson. It’s from the W.H.O.

But I think that fundamentally, at the outset of the pandemic, the most important question orienting all of our thinking was, how bad could this get? And it turns out that almost all of the people who were saying back then that we shouldn’t do much to intervene were extremely wrong about how bad it would be

The argument then was, more or less, “We don’t need to do anything too drastic, because it’s not going to be that big a deal.” Now, in 2023, it’s the opposite argument: “We shouldn’t have bothered with restrictions, because they didn’t have an impact; we would have had this same death toll anyway.” But the death toll turned out to be enormous.

Now, if we had supplied all these skeptics with the actual numbers at the outset of the pandemic, what kind of audience would they have had? If instead of making the argument against universal mitigation efforts on the basis of a death toll of 40,000 they had made the argument on the basis of a death toll of more than a million, do you think the country would’ve said, they’re right, we’re doing too much, let’s back off?

McLean: I think that if you had gone to the American people and said, this many people are going to die, that would’ve been one thing. But if you had gone to the American people and said, this many people are going to die and a large percentage of them are going to be over 80, you might’ve gotten a different answer.

I’m not arguing we shouldn’t have been trying to get a clearer sense of the true fatality rate, or that we shouldn’t have been clearer about the age skew. But Bhattacharya was also offering an estimate of fatality rate that turned out to be off by a factor of a hundred from the I.F.R. that you yourselves cite as correct. And then you say that Bhattacharya was right and Ferguson was wrong.

And you, too, Joe, you wrote an article in April expressing sympathy for Covid skeptics and you said ——Nocera: This April?No, 2020.Nocera: Oh, oh. That’s the one where I praised Alex Berenson.You also cited some Amherst modeling which said that we were going to have 67,000 to 120,000 American deaths. We already had, at that point, 60,000. So you were suggesting, in making an argument against pandemic restrictions, that the country as a whole was going to experience between 7,000 and 60,000 additional deaths from that point.

when I think about the combination of the economic effects of mitigation policies and just of the pandemic itself and the big fiscal response, I look back and I think the U.S. managed this storm relatively well. How about each of you?

in this case, Congress did get it together and did come to the rescue. And I agree that made a ton of difference in the short term, but the long-term effects of the fiscal rescue package were to help create inflation. And once again, inflation hits those at the bottom of the socioeconomic distribution much harder than it does those at the top. So I would argue that some of what we did in the pandemic is papering over these long-term issues.

I think as with a lot of the stuff we’ve talked about today, I agree with you about the underlying problems. But if we take for granted for a moment that the pandemic was going to hit us, when it did, under the economic conditions it did, and then think about the more narrow context of whether, given all that, we handled the pandemic well. We returned quickly to prepandemic G.D.P. trends, boosted the wealth of the bottom half of the country, cut child poverty in half, pushed unemployment to historical lows.

What sense do you make of the other countries of the world and their various mitigation policies? Putting aside China, there’s New Zealand, Australia, South Korea — these are all places that were much more aggressive than the U.S. and indeed more than Europe. And had much, much better outcomes.

Nocera: To be perfectly honest, we didn’t really look, we didn’t really spend a lot of time looking at that.

McLean: But one reason that we didn’t is I don’t think it tells us anything. When you look at who Covid killed, then you have to look at what the pre-existing conditions in a country were, what percentage of its people are elderly. How sick are people with pre-existing conditions?

I just don’t think there’s a comparison. There’s just too many factors that influence it to be able to say that, to be able to compare America to any other country, you’d have to adjust for all these factors.

But you do spend a bit of time in the book talking about Sweden. And though it isn’t precisely like-for-like, one way you can control for some of those factors is grouping countries with their neighbors and other countries with similar profiles. And Sweden’s fatality rate in 2020 was 10 times that of Norway, Finland and Iceland. Five times that of Denmark. In the vaccination era, those gaps have narrowed, but by most metrics Sweden has still done worse, overall, than all of those countries.

On the matter of omniscience. Let’s say that we can send you back in time. Let’s put you both in charge of American pandemic response, or at least American communication about the pandemic, in early 2020. What would you want to tell the country? How would you have advised us to respond?

McLean: What I would want is honesty and communication. I think we’re in a world that is awash in information and the previous methods of communication — giving a blanket statement to people that may or may not be true, when you know there’s nuance underneath it — simply doesn’t work anymore

o I would’ve been much more clear — we think masks might help, we don’t know, but it’s not that big of an ask, let’s do it. We think the early data coming out of Italy shows that these are the people who are really, really at risk from Covid, but it’s not entirely clear yet. Maybe there is spread in schools, but we don’t know. Let’s look at this and keep an open mind and look at the data as it comes in.

Furthermore, both Reagan and Clinton inherited depressed economies, with unemployment well over 7 percent. This meant that there was a lot of economic slack, allowing rapid growth as the unemployed went back to work. Today, by contrast, unemployment is under 5 percent, and other indicators suggest an economy close to full employment. This leaves much less scope for rapid growth.

The only way we could have a growth miracle now would be a huge takeoff in productivity — output per worker-hour. This could, of course, happen: maybe driverless flying cars will arrive en masse. But it’s hardly something one should assume for a baseline projection.

belief that tax cuts and deregulation will reliably produce awesome growth isn’t unique to the Trump-Putin administration.

We heard the same thing from Jeb Bush (who?); we hear it from congressional Republicans like Paul Ryan. The question is why. After all, there is nothing — nothing at all — in the historical record to justify this arrogance.

Yes, Reagan presided over pretty fast growth. But Bill Clinton, who raised taxes on the rich, amid confident predictions from the right that this would cause an economic disaster, presided over even faster growth. President Obama presided over much more rapid private-sector job growth than George W. Bush, even if you leave out the 2008 collapse. Furthermore, two Obama policies that the right totally hated – the 2013 hike in tax rates on the rich, and the 2014 implementation of the Affordable Care Act – produced no slowdown at all in job creation.

Meanwhile, the growing polarization of American politics has given us what amount to economic policy experiments at the state level. Kansas, dominated by conservative true believers, implemented sharp tax cuts with the promise that these cuts would jump-start rapid growth; they didn’t, and caused a budget crisis instead. Last week Kansas legislators threw in the towel and passed a big tax hike.

At the same time Kansas was turning hard right, California’s newly dominant Democratic majority raised taxes. Conservatives declared it “economic suicide” — but the state is in fact doing fine.

It would be nice to pretend that we’re still having a serious, honest discussion here, but we aren’t. At this point we have to get real and talk about whose interests are being served.

Never mind whether slashing taxes on billionaires while giving scammers and polluters the freedom to scam and pollute is good for the economy as a whole; it’s clearly good for billionaires, scammers, and polluters.

And on such matters Donald Trump is really no worse than the rest of his party. Unfortunately, he’s also no better.

In the course of his five-and-a-half-year presidency, beginning in 1969, Nixon launched and managed five successive and overlapping wars — against the anti-Vietnam War movement, the news media, the Democrats, the justice system and, finally, against history itself.

All reflected a mind-set and a pattern of behavior that were uniquely and pervasively Nixon’s: a willingness to disregard the law for political advantage, and a quest for dirt and secrets about his opponents as an organizing principle of his presidency.

Long before the Watergate break-in, gumshoeing, burglary, wiretapping and political sabotage had become a way of life in the Nixon White House.

What was Watergate? It was Nixon’s five wars.

In 1970, he approved the top-secret Huston Plan, authorizing the CIA, the FBI and military intelligence units to intensify electronic surveillance of individuals identified as “domestic security threats.” The plan called for, among other things, intercepting mail and lifting restrictions on “surreptitious entry” — that is, break-ins or “black bag jobs.”

On June 17, 1971 — exactly one year before the Watergate break-in — Nixon met in the Oval Office with his chief of staff, H.R. “Bob” Haldeman, and national security adviser Henry Kissinger. At issue was a file about former president Lyndon Johnson’s handling of the 1968 bombing halt in Vietnam.

“You can blackmail Johnson on this stuff, and it might be worth doing,” Haldeman said, according to the tape of the meeting. “Yeah,” Kissinger said, “but Bob and I have been trying to put the damn thing together for three years.” They wanted the complete story of Johnson’s actions.

“Huston swears to God there’s a file on it at Brookings,” Haldeman said. “Bob,” Nixon said, “now you remember Huston’s plan? Implement it. . . . I mean, I want it implemented on a thievery basis. God damn it, get in and get those files. Blow the safe and get it.”

Though Ellsberg was already under indictment and charged with espionage, the team headed by Hunt and Liddy broke into the office of his psychiatrist, seeking information that might smear Ellsberg and undermine his credibility in the antiwar movement.

“You can’t drop it, Bob,” Nixon told Haldeman on June 29, 1971. “You can’t let the Jew steal that stuff and get away with it. You understand?”

In a July 3, 1971, conversation with Haldeman, he said: “The government is full of Jews. Second, most Jews are disloyal. You know what I mean? You have a Garment [White House counsel Leonard Garment] and a Kissinger and, frankly, a Safire [presidential speechwriter William Safire], and, by God, they’re exceptions. But Bob, generally speaking, you can’t trust the bastards. They turn on you.”

In a tape from the Oval Office on Feb. 22, 1971, Nixon said, “In the short run, it would be so much easier, wouldn’t it, to run this war in a dictatorial way, kill all the reporters and carry on the war.”

John N. Mitchell, Nixon’s campaign manager and confidante, met with Liddy at the Justice Department in early 1972, when Mitchell was attorney general. Liddy presented a $1 million plan, code-named “Gemstone,” for spying and sabotage during the upcoming presidential campaign.

In Nixon’s third war, he took the weapons in place — the Plumbers, wiretapping and burglary — and deployed them against the Democrats challenging his reelection.

Operation Diamond would neutralize antiwar protesters with mugging squads and kidnapping teams; Operation Coal would funnel cash to Rep. Shirley Chisholm, a black congresswoman from Brooklyn seeking the Democratic presidential nomination, in an effort to sow racial and gender discord in the party;

Operation Opal would use electronic surveillance against various targets, including the headquarters of Democratic presidential candidates Edmund Muskie and George McGovern; Operation Sapphire would station prostitutes on a yacht, wired for sound, off Miami Beach during the Democratic National Convention.

Mitchell approved a $250,000 version, according to Jeb Magruder, the deputy campaign manager. It included intelligence-gathering on the Democrats through wiretaps and burglaries.

They discussed a secret $350,000 stash of cash kept in the White House, the possibility of using priests to help hide payments to the burglars, “washing” the money though Las Vegas or New York bookmakers, and empaneling a new grand jury so everyone could plead the Fifth Amendment or claim memory failure. Finally, they decided to send Mitchell on an emergency fundraising mission.