Should Trump win, there are a few predictions we can make with relative certainty. The Trump administration will roll back the Environmental Protection Agency’s car and truck pollution rules, which Republicans describe as a tyrannical EV mandate forced on unwilling American consumers. Trump will also try to unwind the EPA’s restrictions on carbon emissions from power plants. And he will once again take the United States out of the Paris Agreement, just as he did during his first term. Trump has also pledged to reclassify more than 50,000 federal employees as political appointees. That would make it possible for them to be fired en masse.
Make no mistake, Trump would be a disaster for American climatepolicy — and if your biggest issue is that the United States should aim to rapidly reduce its emissions of heat-trapping pollution, then you probably shouldn’t vote for him. But just because he will wreck climate change policy doesn’t guarantee that he will destroy the clean energy economy. A second Trump administration would be a bleak time for decarbonization advocates, but it would not be a hopeless time — even if we see a powerful and even Caesarist Trump administration, politics would go on. It is worth thinking about what those politics could look like ahead of time.
Trump’s first term saw no shortage of contradictions in his climate program. Trump was a climate change denier who seemed to revel in unraveling environmental programs. But he also ultimately signed the Energy Act of 2020, a bipartisan package written by Senator Joe Manchin and Lisa Murkowski that boosted the advanced nuclear industry, energy storage, and carbon capture, and which created programs that were later funded by Biden’s Bipartisan Infrastructure Law.
Another key contradiction in Trump’s first term was the interplay of the executive and legislative branches. Trump’s political appointees — including Scott Pruitt, his notorious and scandal-ridden EPA chief — pursued an aggressively pro-carbon agenda, rolling back environmental protections and opening up huge new swaths of public land to oil and gas drilling. The White House kept proposing budgets that cut tens of billions of dollars from key federal programs, including the EPA and the Department of Energy.
But Congress never actually passed those budgets. It became one of the strangest two-steps of the Trump administration: Again and again, the White House would unveil a radical, lacerating budget proposal that zeroed out key programs across the federal government and sent it to Congress. The press would cover Trump’s plans to destroy federal agencies, and the public would react with alarm. Then, several months later, Congress would pass a far more conventional budget. In May 2017, for example — the peak of Trump’s post-election Republican trifecta — Congress passed a budget that preserved nearly all EPA programs and increased funding for some renewable energy programs, including ARPA-E.
This doesn’t mean that the EPA and other federal agencies survived the first Trump administration unscathed. Many federal agencies saw brain drain throughout the four years of Trump; when Biden took office in 2021, his political appointees said that their first act was to rebuild the agencies’ depleted capacity. And if Trump carried out his aspiration of firing tens of thousands of federal workers, then the agencies would be even more beset, even more dysfunctional, at the end of his next term.
But the Trump White House seemed torn between the impulse to radically restructure the administrative state and the need to finalize its own deregulatory rules. The administration’s incompetence at dotting its i’s and crossing its t’s kept getting in the way of its own agenda: While the federal government usually beats legal challenges to its own rules, the Trump administration lost roughly 80% of its court fights.
Now, unlike during his first term, Trump will have a more favorable Supreme Court to work with: Conservatives now hold a 6-3 majority on the high court — and it could easily become 7-2 under a Trump administration. Last month, the Supreme Court made it harder for the regulatory state to issue any new rules, essentially subjugating agency authority to the judiciary. That could allow the Supreme Court to force a Trump initiative into law — but it could also hamstring Trump’s agencies by forcing them to do more work, to file more paperwork, to respond to even more public comments.
A second Trump presidency will differ from its prequel in at least one respect: its fossil fuel of choice. Throughout the 2016 election, Trump bound his campaign to the coal industry, pledging to bring back mining jobs and end Obama’s “war on coal.” Soon after his election, he received a coal “action plan” directly from Bob Murray, the CEO of what was then the country’s largest coal company.
Trump failed. Murray’s company declared bankruptcy in 2019, and coal mining jobs collapsed to a historic low in November 2020. (Coal mining employment has modestly recovered under Biden.) Now, as Heatmap columnist Paul Waldman has observed, Trump barely talks about coal at all; he now seems to revere the oil and gas industry. In April, he met with oil and gas executives at Mar-a-Lago and asked for $1 billion in campaign donations.
This speaks to another contradiction that’s far bigger than Trump, between the varying needs of big and small fossil fuel companies. Climate advocates sometimes talk about “the fossil fuel industry” as a monolith, but in fact it is riven with its own divisions and disagreements. Oil and natural gas companies have different demands from coal companies. There are also disagreements between large oil companies, such as ExxonMobil, whose size lets them afford higher regulatory burdens, and smaller oil and gas drillers, who oppose any regulation whatsoever. This divergence could affect how the Trump administration handles the EPA’s methane rules, which require oil companies to cap and monitor greenhouse gas emissions from oil and gas drilling equipment.
Then there’s nuclear power, the country’s most prolific zero-carbon fuel, which enjoys nearly unmatched bipartisan support but which some voters are much more wary of. Many nuclear advocates see Trump as neutral on the technology, even a potential ally, but Project 2025 proposes canceling the tens of billions of dollars in nuclear subsidies that the Biden administration has proposed. That would render the industry uneconomic and force many plants to close.
These are, of course, not even the most important contradictions that will define Trump’s White House. (I remain curious, for instance, about how Trump’s backers in Silicon Valley — whose personal wealth is tied up with big American tech companies and who detest Biden’s aggressive approach to antitrust enforcement — feel about Trump’s devil-may-care approach to defending Taiwan or about J.D. Vance’s praise of Lina Khan.)
Trump has promised to bring back manufacturing to the United States and wage a trade war on China. He also opposes electric vehicles. But some of the country’s biggest new manufacturing facilities are going to make EVs and batteries — and these are in the Republican heartland of South Carolina, Tennessee, and Texas, as well as the battleground state of Georgia. Trump has pledged to repeal the Inflation Reduction Act’s $7,500 tax credit for buying EVs, and Project 2025 proposes neutering the Energy Department’s Loan Programs Office, which can lend money to fund new EV factories. How will those anti-decarbonization policies fit in with local Republican economies? It is not hard to imagine a world where Trump repeals the consumer tax credit for EVs and claims victory over it, but preserves the IRA’s far more lucrative 45x subsidy that rewards companies that make batteries and EVs. That would leave some of the most important pro-EV policy in the IRA intact while generating the necessary anti-climate headlines.
These focuses of ideological slippage shouldn’t make climate advocates feel more relaxed — on the contrary, some of Trump’s most authoritarian impulses have been unleashed in response to political weakness or outright unpopularity. Perhaps that’s most clear around Trump’s outright denial of climate change, which remains among the most unpopular parts of his agenda. Is it any wonder that Jeffrey Clark, a climate-questioning environment lawyer who Trump installed at the Justice Department, ultimately helped lead the department’s attempt to overturn the 2020 election?
The great irony — you might even say tragedy — of American energy policy is that voters across the parties see energy as a culture war issue. Environmentalists dream of creating an all-renewable energy system even though it would gobble up massive amounts of land. Republicans talk about supporting nuclear power, even though the nuclear industry has always and everywhere required state support. Trump, a pile of contradictions himself, and a distracted culture warrior, will only accelerate these contradictions. I am by no means optimistic about the results. But I expect that the reality of Trump’s governance will, even on these issues, surprise us.
GEM