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I think he's preparing a soft coup. He knew enough to create a new governmental agency out of thin air, put musk in charge of it (the same guy that everyone laughed at when he called himself the "First buddy"), and now they're exploiting the legal limbo state as long as they can to basically gut out institutions and agencies, and put them under his direct control. This would not be possible for any other agency that has their charter laid out clearly, but since this one is still being processed, they can exploit the uncertainty.