Navigating Policy Implementation Challenges

 Santi: Hi, this is a special episode of Statecraft. I've got a wonderful guest host with me today.

Kyla Scanlon: Hey, I’m Kyla Scanlon! I'm the author of a book called In This Economy and an economic commentator.

Santi: Kyla has joined me today for a couple reasons. One, I'm a big fan of her newsletter: it's about economics, among many other things. She had a great piece recently on what we can learn from C.S. Lewis’s The Screwtape Letters, which is a favorite book of mine.

Kyla’s also on today because we're interviewing Wally Adeyemo, who was the Deputy Secretary of the Treasury in the Biden administration. We figured we each had questions we wanted answered.

Kyla: Yeah, I've had the opportunity to interview Wally a couple times during the Biden administration, and I wanted to see where he thinks things are at now. He played a key role in implementing the Inflation Reduction Act, financial sanctions on Russia, and a whole bunch of other things.

Santi: For my part, I'm stuck on Wally's role in setting up the IRS’s Direct File program, where you can file your taxes for free directly through the IRS instead of paying TurboTax a hundred bucks to do it.

“Good governance types” tend to love Direct File, but the current admin is thinking of killing it. I wanted to understand how the program got rolled out, how Wally would respond to criticisms of the program, and what he learned from building something in government, which now may disappear.

Kyla, you've talked to Wally before. How did that conversation go?

Kyla: I actually was able to go to his office in D.C., and I talked to a couple of key people in the Biden administration: Jared Bernstein, the former chair of the CEA, and Daniel Hornung, who was at the National Economic Council.

We're talking to Wally on the day that the House passed the one big beautiful bill. There's also so much happening financially, like the bond market is totally rebelling against the US government right now. I'm really curious how he thinks things are, as a key player in the last administration.

Santi: Wally, you've spent most of your career in Democratic Party institutions. You worked on the Kerry presidential campaign in 2004. You served in the Obama admin. You were the first chief of staff to the CFPB, the president of the Obama Foundation, and, most recently, Deputy Treasury Secretary in the Biden admin.

30,000ft question: How do you see the Democratic Party today?

My view is that we continue to be the party that cares deeply about working-class people, but we haven't done a good job of communicating that to people, especially when it comes to the things that matter most to them. From my standpoint, it's costs: things in America cost too much for a working-class family.

I want to make sure I define working class: I think about people who make under $100,000 a year, many of whom don't own homes on the coast or don’t own a significant amount of stocks (which means they haven't seen the asset appreciation that's led to a great deal of wealth creation over the last several decades). When you define it that way, 81% of Americans sit in that category of people. Despite the fact that they've seen their median incomes rise 5-10% over the last five years, they've seen the cost of the things they care about rise even faster.

We haven't had a clear-cut agenda focused on the standard of living, which I think is the thing that matters most to Americans today.

Santi: There are folks who would say the problem for Democrats wasn't that they couldn't communicate clearly, or that they didn't have a governing agenda, but that they couldn't execute their agenda the way they hoped to in the time available to them. Would you say there's truth to that claim?

Most people talk about a communications issue, but I don't think it's a communications issue. There are two issues. One is an implementation issue, and the second is an issue of the actual substance and policy at the Treasury Department. I was the deputy secretary, but I was also the Chief Operating Officer, which meant that I was in charge of execution. The two most significant domestic things I had to execute were the American Rescue Plan, where $1.9 trillion flowed through the Treasury Department, and the Inflation Reduction Act. The challenge with execution in the government is that we don't spend a lot on our systems, on making execution as easy as possible.

For example, the Advanced Child Tax Credit was intended to give people money to help with each of their children during the pandemic. What Congress called on us to do was to pay people on a monthly basis. In the IRS system, you pay your taxes mostly on an annual basis, which meant that most of our systems weren't set up to pay a monthly check to Americans. It took us a great deal of work to figure out a way to recreate a system just to do that.

We've underinvested in the systems that the IRS works on. The last time we made a significant investment in the IRS's digital infrastructure was the 1960s; before we had an ATM machine, before we sent a man to the moon, before we had a personal computer. So that meant that everything was coded in a language called COBOL.

So execution was quite hard in the American Rescue Plan. People were left out and felt that the government wasn’t working for them. If you called the IRS, only 13% of your calls were being answered. We got that back up to 85% before we left. Ultimately, I think part of this is an execution challenge. In government we want to spend money coming up with new policies, but we don't want to pay for execution, which then means that when you get the policy passed, implementation isn't great.

When Jen Pahlka was on your show, she talked about the need to focus on identifying the enablers to implementation. Direct File was one of the best examples of us taking implementation very seriously.

But also, on some policy issues that mattered most to Americans, we weren't advancing the types of strategies that would've helped lower the cost of housing and lowering the cost of medicine. We did some things there, but there's clearly more that we could have done, and more we need to do going forward to demonstrate that we're fighting to bring down those costs. It's everything from permitting reform — not just at the federal level, but what can we do to incentivize it at the state and local level — to thinking about what we can do on drug costs. Why does it cost so much more to get a medicine in America than in Canada? That is something that we can solve. We’ve just chosen not to at the federal level.

At the end of the year, we were going to take action to go after some of the middlemen in the pharmacy industry who were taking out rents and large amounts of money. It dropped out of the bill because of the negotiations between the Republican Congress and then President-elect Trump. But there are a lot of things that we can do both on implementation, which will mean that Americans feel the programs that we're passing in a more effective way, and policy solutions that we need to advance as a party that will help us as well.

Kyla: Some people think Americans tend to vote against their own self-interest. How can your party message to people that these sorts of policies are really important for them?

Ultimately, what I found is that most people just understand their self-interest differently, and for them, a big part of this was, “Who's fighting for me on the issues that I care most about?”

From my standpoint, part of the problem we had with Direct File, which I think was an innovative solution, was that we got to implementing it so late in the administration that we didn't have the ability for it to show the impact. I'm hoping future administrations will think through how to start their implementation journey on things like Direct File sooner in the administration, when you have a great deal of political capital, so people can actually feel the impact over time.

To your question, it’s not just about the messaging, it's about the messenger. People tend to trust people who look like them, who come from the places they come from. When it came to the Child Tax Credit and also to Direct File, the biggest innovation wasn't the technology: the technology for Direct File has been used by the Australians, the British, and other countries for decades.

The biggest innovation was us joining that technology with trusted people in communities who were going out to talk to people about those programs and building those relationships. That was something that the IRS hadn't done a great deal of. We invested a great deal in those community navigators who were helping us get people to trust the things the government was doing again, like the Child Tax Credit, like Direct File, so that they could use it.

We often think that Washington is going to be able to give messages to the country that people are going to hear. But we're both in a more complicated media environment, where people are far more skeptical of things that come from people in Washington. So the best people to advocate for and celebrate the things that we're doing are people who are closer to the communities we're trying to reach. In product advertising today, more companies are looking to influencers to advertise things, rather than putting an ad on television, because people trust the people that they follow. The same is true for the things that we do in government.

Santi: I’ve talked to colleagues of yours in the last administration who say things like, “In the White House, we did not have a good enough sense of the shot clock.” They point to various reasons, including COVID, as a reason the admin didn't do a good enough job of prioritization.

Do you think that's true, that across the administration, there was a missing sense of the shot clock or a missing sense of prioritization?

 No, because I'm a Lakers fan. These are professionals. We're professionals. This is not our first rodeo. We know how much time is on the shot clock; we played this game. The challenge wasn't just COVID. For me at Treasury — and I think this is the coolest part of being Deputy Secretary of the Treasury — I had responsibilities domestic and international. As I'm trying to modernize the IRS, to invest all my time in making the system work better for customers and to collect more taxes from the people who owe money, Russia invades Ukraine. I had to turn a bunch of my attention to thinking about what we were going to do there. Then you have Hamas attacking Israel.

There was more we should have done on the domestic end, but we have to remember that part of the presidency is: you get to do the things you want to do, but you also have to do the things you have to do. We had a lot of things we had to do that we weren't planning for which required all-of-the-administration responses.

I think the most important lesson I've learned about that is that it comes down to both being focused on the things that matter, and being willing to communicate to the American people why your priorities have to change in light of things that happen in the world.

But the people I'm sure you've talked to, most of them work on domestic policy alone, and they probably never have been in a National Security Council meeting, where you're thinking about the risks to the country. The president has to do both of those things. So I get how difficult it is to do that, just given where I sat at the Treasury Department.

Santi: Looking back from an implementation perspective, are there things you would've done differently during your time at Treasury?

The most important thing that I would've done differently was to immediately set up a permanent implementation and delivery unit in the Treasury Department. We always like to pretend like the Treasury Department is just a policy department where we make policy, we collect taxes. But in any crisis the country ever has, a great deal of responsibility — for execution or implementation of whatever the response is — falls to the Treasury Department. Think about the financial crisis, which is clearly something that's in the Treasury's domain. The vast majority of money for COVID flowed through the Treasury Department. You think about the IRA, a climate bill: the vast majority of that money flows through the Treasury Department.

And Treasury doesn't have a dedicated staff that's just focused on implementation: How do we do this well? How do we make sure the right people are served? How do we make sure that we communicate this well? We did this to a degree by a team that was focused on the American Rescue Plan. But it was only focused on the American Rescue Plan. If I could start again, I would have said, “I want a permanent implementation structure within the Treasury Department of people who are cross-cutting, who only think about how we execute the policies that we pass through Congress and that we put together through an executive order. How do we do that extremely well?”

Kyla: What you're talking about is very people-centric: How do we get an implementation team, and how do we make sure that the right people are doing the right jobs? Now we have DOGE, which is less people-centric. How do you reconcile what Doge is doing relative to what you would've done differently in this role that you had?

As you would suspect, I wasn't excited about the fact we had lost the election, but initially I thought DOGE could be helpful with technology. I think marrying technology with people — that's the key to success for the government. We've never really been great at doing technology in the government.

Part of the reason for that is a procurement process that is very slow because of how the federal acquisition rules work. What we are trying to do is prevent corruption and also waste, fraud, and abuse. But what that does is, it leads to slowness in our ability to get the technology on board that we need, and in getting the right people.

I was hoping DOGE would bring in people who knew a great deal about technology and put us in a position where we could use that to build better products for the American people. I thought they would love Direct File, and that they would find ways to improve Direct File and expand it to more Americans.

My view is that any American in the working class or middle class should not have to pay a company to file their taxes. We have the ability in this country, and I think Direct File was proving that. My goal, if we’d had more time, was to expand this to almost any American being able to use it. I thought they'd be able to accelerate that by bringing in the right people, but also the right technology. We were on that path before they took those two things apart.

My sense is that you have to reform the way that we hire people because it's too hard to hire the right people. In some cases, you don't need some of the people you have today because technology is going to require different skills to do different things. It's easier to break something, I found, than it is to build something. I think that's what they're finding today as well.

Santi: When I talk to left-of-center folks about the DOGE push, they tend to be skeptical about the idea that AI or modern technology can replace existing federal workers. I think some of that is a natural backlash to the extreme partisan coding of DOGE, and the fact that they’re firing a lot of people very quickly.

But what's your view? After DOGE, what kinds of roles would you like to see automated?

Let me say: I disagree with the view that DOGE and technology can’t replace some of the things that federal workers do today. My view is that “productivity enhancing” tech — it's not that it is going to make employees who are currently doing the job more productive. It is going to mean you need fewer employees. We have to be honest about that.

Go to the IRS, for example. When I got there, we had a huge paper backlog at the IRS because, despite what most people think, millions of people still file their taxes by paper, and they send them to the IRS. And during the pandemic, the commissioner, who was then working for President Trump, decided to shut down the IRS for public health reasons — to make sure employees did not have to risk getting COVID.

There were piles of paper backing up, so much so that they had filled cafeterias at the IRS facilities with huge piles of paper. The problem, of course, is that, unlike modern systems, you could not just machine-read those papers and put them into our systems. Much of that required humans to code those papers into the system by hand. There is no need in the 21st century for that to happen, so one of the things that we started to do was introduce this simple thing called scanning, where you would scan the papers — I know it sounds like a novel idea. That would help you get people’s tax returns faster into the system, but also get checks out quickly, and allow us to see if people are underpaying their taxes, because we can use that data with a modern system. But over time, what would that mean? We’d need fewer people to enter the data from those forms.

When we get money for the IRS from Congress, it is actually seen as revenue-raising because they expect it to bring down the debt and deficit, which is completely true. But the model Congress uses to do that is reliant on the number of full-time employees we hire. One challenge we have with the IRS — and in government systems in general — is that you don't get credit for technology investments that should improve your return on investment.

So whenever we did the ROI calculations for the IRS, the Congressional Budget Office would calculate how much revenue we'd bring in, and it was always based on the number of people you had doing enforcement work that would lead to certain dollars coming in. So we got no credit for the technology investments. Which was absolutely the opposite of what we knew would be true: the more you invested in technology, the more likely you were to bring in more revenue, and you would be able to cut the cost of employees.

Santi: If the CBO changed the way it scored technology improvements, would more Congresspeople be interested in funding technology?

It is just a CBO issue. It's one we've tried to talk to them about over the last several years, but one where they've been unwilling to move. My view is that unlocking this will unlock greater investment in technology in a place like the IRS, because every dollar you invest in technology — I think — would earn back $10 in additional tax revenue we'd be able to collect from people who are skipping out on their taxes today. It's far more valuable to invest in that technology than to grow the number of employees working in enforcement at the IRS. You need both, but you can't say that a person is worth 5x their salary in revenue and that technology is worth 0. That makes no sense.

Kyla: When we spoke about Direct File many months ago, people in my comment section were super excited and saying things like, “I just want the government to tell me how much money I owe.” When you think about the implementation of Direct File, what went right, and how do you think it has evolved?

The thing that went right was that we proved that we could build something quite easily, and we built it ourselves, unlike many technology projects in government. We didn't go out and hire a bunch of consultants and contractors to do it. We did it with people at the IRS, but also with people from 18F and from GSA who worked in the government. We did it in partnership with a number of stakeholders outside the government who gave us advice, but the build was done by us.

The reason that was important — and the reason it's important to build more things internally rather than hiring consulting firms or other people to build it — is that you then have the intellectual capital from building that, and that can be used to build other things. This was one product, but my view is that I want the IRS home page to one day look a lot more like the screen on your iPhone, so that you can click on the app on the IRS homepage that can help you, depending on what you need — if it's a Direct File, or if it's a tax transcript.

By building Direct File internally, we were getting closer to that, and the user scores on the effectiveness of the tool and the ability to use it were through the roof. Even for a private sector company, it would've been seen as a great success. In the first year, we launched late in the filing season, mostly just to test the product, but also to build stakeholder support for it. In the limited release, 140,000 people used it. The average user said that before Direct File, it took them about 13 hours to file their taxes, and with Direct File, it took them just over an hour to file their taxes.

But you also have to think about how much money the average American spends filing their taxes: about $200. That's $200 that a family making under $100,000 could invest in their kids, in paying some bills, rather than in filing their taxes.

Even this year, with no advertising by the Trump administration of Direct File, we had more than 300,000 people use it. The user scores for the product were above 85%. The challenge, of course, is that instead of DOGE investing in improving the product — which was a place where you could have seen real intellectual capital go to work and make something that works for all Americans — they've decided to discontinue Direct File. [NB: There has been widespread reporting that the administration plans to discontinue Direct File. The GOP tax bill passed by the House would end Direct File if it becomes law. At the time of publication, the Direct File has not been discontinued.]

The sad part is that when you think about where we are as a country, this is a tool that could both save people money, save people time, improve our ability to collect taxes, and is something that exists in almost every other developed economy. It makes no sense to me why you would end something like this rather than continue to develop it.

Santi: People remember the failure of healthcare.gov, which crashed when it was rolled out all at once to everyone in the country. It was an embarrassing episode for the Obama administration, and political actors in that administration learned they had to pilot things and roll them out in phases.

Is there a tension between that instinct — to test things slowly, to roll them out to a select group of users, and then to add users in following cycles — Is there a tension between that and trying to implement quickly, so that people see the benefit of the work you're doing?

One of my bosses in the Obama administration was Jeff Zients, the person who was brought in to fix healthcare.gov. He relentlessly focused on execution. He always made the point that it's easy to come up with a strategy to some degree: you can figure out what the policy solution is. But the difference between good and great is how you execute against it. I think there is some tension there, but not as much as you would think.

Once we were able to show that the pilot was a success, I got invited to states all over the country, like Maryland, to announce that they were joining Direct File the next year. These members of Congress wanted to do Direct File events telling people in their state, “This product that's worked so well elsewhere is coming to us next.” It gave us the ability to celebrate the success.

I learned the lesson not just from Zients, but also from then-professor Elizabeth Warren, whom I worked for as chief of staff at the CFPB. One challenge we had at the CFPB was to build a complaint hotline, at that point mostly phone-operated, for people who were suffering. They said it would take us at least a year to build out all the product functions we need. We decided to take a modular approach and say, “How long would it take for us to build the system for one product? Let's try that and see how that works. We'll do a test.”

It was successful, and we were able to use that to tell the story about the CFPB and what it would do, not just for mortgages, but for all these other products. We built user interest in the complaint hotline, in a way that we couldn’t have if we'd waited to build the whole thing at once. While I think you're right that there is some tension between getting everyone to feel it right away and piloting; if the pilot is successful, it also gives you the opportunity to go out and sell this thing to people and say, “Here's what people who did the pilot are saying about this product.”

I remember someone in Texas who was willing to do a direct-to-camera and talk about the ways that Direct File was so easy for them to use. It gets back to my point on message and messenger. Deputy Secretary Adeyemo telling you about this great thing the government did is one thing. But an American who looks like you, who's a nurse, who’s a mom of two kids, telling you that this product actually worked for her: That's something that more people identify with.

Healthcare.gov taught us the lesson of piloting and doing things in a modular way. This is what companies have been doing for decades. If it's worked for them, I think it can work for the government too.

Santi: I’m a fan of Direct File, personally. I don’t want this administration to kill it. But I was looking through some of the criticism that Direct File got: for instance, there's criticism about it rivaling the IRS Free File program, which is another IRS program that partners with nonprofits to help some folks file their taxes for free.

Then there’s this broader philosophical criticism: “I don’t want the feds telling me how much I owe them.” The idea is that the government is incentivized to squeeze every last dollar out of you.

I’m curious what you make of that, in part because I spoke recently to an American who worked on building e-government systems for Estonia. One of the things that has allowed Estonia to build cutting-edge digital systems in the government is that Estonia is a small and very high-trust society. Everybody's one degree of separation from everybody else.

We're a much bigger and more diverse country. How do you think that affects the federal government's ability to build tools like Direct File?

I think it affects it a lot, and it gets back to my point: not just the message but the messenger. I saw this not just with Direct File, but with the Advanced Child Tax Credit, which was intended to help kids who were living in poverty, but also families overall. What we found initially in the data was that, among families that didn't have to file taxes because they made too little, many of them were unwilling to take advantage of Direct File and the Advanced Child Tax Credit because they couldn't believe the government was doing something to just help them. I spent a lot of time with priests, pastors, and other community leaders in many of the communities where people were under-filing to try and get them to talk about this program and why it was something that they should apply for.

One of the challenges we suffer from right now in America, overall, is a lack of trust in institutions. You have to really go local and try to rebuild that trust.

That also speaks to taking a pilot approach that goes slower in some cases. Some of the criticism we got was, “Why don't you just fill out this form for us and then just send it to us, so that Direct File is just me pressing a button so I can pay my taxes?”

Part of the challenge for us in doing that is a technology challenge: we are not there technologically. But the other problem is a trust problem. If I were to just fill out your taxes for you and send them to you, I think people, at this stage, would distrust the government and distrust the technology.

Direct File had to be on a journey with people, showing people, “If I put in this information, it accurately sends me back my check.” As people develop more trust, we can also add more features to it that I think people will trust. But the key has to be: how do you earn that trust over time?

We can't expect that if we put out a product that looks like something the Estonian government or Australia would put out, that people would trust it at this point. We have to realize that we are on a journey to regain the trust of the American people.

The government can and will work for them, and Direct File was a part of that. We started to demonstrate that with that product because the people who used it in these communities became the spokespeople for it in a better way than I ever could be, than the Secretary or the President could be.

Everyone knows that they need to pay their taxes because it's part of their responsibility living in this country. The things that make people the most upset is the fact that there are people who don't pay their taxes. We committed that we were going to go after them.

The second frustration was: “Why do you make it so hard for me to pay my taxes? Why can't I get through to you on the phone line? Why do I have to pay somebody else to do my taxes?” Our goal was to solve those two problems by investing money and going after the people who just decided they weren't going to pay, but also by making it as easy as possible for you to pay your taxes and for most people, to get that tax refund as quickly as possible.

But doing that was about going on a journey with people, about regaining their trust in an institution that mattered to them a great deal because 90 something-percent of the money that funds our government comes in through the IRS.

Kyla: You have a piece out in Foreign Affairs called “Make Moscow Pay,” and what I found most interesting about that essay is that you said Europe needs to step it up because the United States won’t. Talk through the role of Treasury in financial sanctions, and your reasons for writing this piece.

People often think about the Treasury Department as doing a few things. One is working with Wall Street; another one is collecting your taxes. Most people don't think about the fact that the Treasury Department is a major part of the National Security Committee, because we have these tools called financial sections.

They use the power of the dollar to try and change the behavior of foreign actors who are taking steps that aren't consistent with our national security interests. A great example of this is what we did with regard to Russia — saying that we're going to cut off Russian banks from the US financial system, which means that you can't transact in US dollars.

The problem for any bank that can transact in dollars is that the backbone of most of the financial world is built on the US dollar. It increases their cost, it makes it more difficult for them to transact, and makes it harder for them to be part of the global economy, nearly impossible.

And that's what we've done in lots of cases when it comes to Russia. We have financial sanction programs that touch all over the world, from Venezuela to Afghanistan. The US government, since 9/11, has used sanctions as one of its primary tools of impacting foreign policy. Some of them have gone well, some of them I think haven't gone as well, and there's a need for us to think through how we use those policies.

Santi: What makes sanctions an effective tool? Positions on sanctions don't line up neatly on partisan lines. Sanctions have a mixed track record, and you'll have Republicans who say sanctions have failed, and you'll have Democrats say sanctions have been an effective tool, and vice versa.

The way I think about sanctions is that they are intended to bring change, and the only way that they work is that they're part of an overarching foreign policy strategy. That type of behavior change was what we saw when Iran came to the table and wanted to negotiate a way to reduce sanctions in exchange for limits on their nuclear program. That's the type of behavior change we’re trying to accomplish with sanctions, but you can't do it with sanctions alone. You need a foreign policy strategy. We didn't do it by the United States confronting Iran; we got our allies and partners to work together with us. When I came into office in 2021, Secretary Yellen asked me to do a review of our sanctions policies — what's worked, what hasn't — because it had been 20 years since the 9/11 attacks.

And the most important lesson I learned was that the sanctions programs that were the most effective were the ones we did on a multilateral basis — so we did it with our friends and allies. Part of the reason for this is that while the dollar is the most dominant currency around the world, oftentimes if you can't do something in dollars, you do it in a euro, or you do it in a Japanese yen, or pound sterling.

The benefit of having allies all over the world is that the dominant, convertible currencies in the world are controlled by allies and partners. When we acted together with them, we were more effective in curtailing the economic activity of our adversary, and our pressure is more likely to lead to them changing their behavior.

We had to be very cautious about collateral damage. You might be targeting an individual, but by targeting that individual, you might make it harder for a company they're affiliated with to continue doing business, or for a country that they're in to get access to banking services. Let's say that you're a huge bank in America, and you're worried about sanctions risk in a small country where you do little business. Why not pull out, rather than having to put in place a huge compliance program? One of the challenges that we have is that the people who make the decisions about whether to extend sanctions don't necessarily spend a lot of time thinking about some of these economic consequences of the sanctions approach.

Whenever I was around the table and we were making a decision about using weapons, there was a process that was very elaborate that ended up with something going to the president. You'd often think about kinetic force very seriously, because you were going to have to get the president to make a decision. We didn't always take that kind of rigor when it came to thinking about using our sanctions policy, but the impact on the lives of people in these countries was just as significant for their access to not only money, but to food and to the resources they needed to live.

Santi: What do you make of the effectiveness of the initial sanctions on Russia after the invasion of Ukraine? I’ve heard mixed reviews from folks inside and outside the Biden administration.

Sanctions, again, to my point, are only a tool. They've had to be part of a larger strategy, and I think those sanctions were quite effective. I think the saving grace for the Russians has been the fact that China has largely been able and willing to give them access to the things they need to continue to perpetuate.

There was a choice for Ukraine, but when you think about Russia's economy today vs. Russia's economy before the sanctions were put in place, it's vastly different. Inflation in Russia still runs far higher than inflation anywhere else in the world. If you were a Russian citizen, you would feel the impacts of sanctions.

The challenge, of course, is that it hasn't changed Vladimir Putin's behavior or the behavior of the Kremlin, largely because they've had access to the goods and supplies they need from China, Iran, and North Korea. But over time, it means Russia's economy is becoming less competitive. They have less access to resources; they're going to struggle.

I think everyone hoped that sanctions would immediately change the calculus of the Kremlin, but we've never seen that to be the case. When sanctions are effective, they take time, because the economic consequences continue to compound over time, and they have to be part of a larger strategy for the behavior of the individual. That's why I wrote the article, because while the Kremlin and Russia are under pressure, their view is that ultimately the West is going to get tired of supporting Ukraine, financially and politically, because the economic consequences for us — while not as significant as for Moscow or for Kiev — have been quite significant, when you think about the cost of living issues in Europe.

I think it’s important to write this now, when it appears that Russia is stalling on negotiations, because ultimately, US financial support is waning. We just know that the Trump administration is not willing to put more money into Ukraine, so Europe is going to have to do more, at a time when their economic situation is quite complicated as well.

They've got a lot to do to build up their economy and their military-industrial base. Asking them to also increase their support for Ukraine at the same time is going to be quite difficult. So using this money that Russia owes to Ukraine — because they owe them compensation at this moment — can be quite influential in helping support the Ukrainians, but also changing Russia's calculus with regard to the ability of Ukraine to sustain itself.

Kyla: On CNBC about a month ago, you said if we ever have a recession over the next couple of months or so, it would be a self-inflicted one. Do you still resonate with that idea?

 To build on the point I was making, the economy has done quite well over the course of the first few months of the year, largely because of the strength of the consumer, where our balance sheets are still quite strong. Companies in America have done well. The biggest headwind the US economy faces has been self-inflicted by the tariffs the president has put on.

 Part of what I still do is talk to CEOs of companies, big and small. Small businesses feel the impact of this even more than the big businesses. What they tell me is that it's not just the tariffs and the fact that they are making it more expensive for them to get the goods that they need, but it's the uncertainty created by the off-again, on-again, nature of those tariffs that makes it impossible for them to plan for what supplies they're going to get the next quarter. How are they going to fulfill their orders? What employees are they going to need? It's having a real impact on the performance of these companies, but also their ability to hire people and plan for the future.

If you go to the grocery store, you're going to start seeing — and you're starting to see already — price increases. The thing that Americans care most about is, the cost of living is just too high. You're at the grocery store, as you're shopping for your kids for the summer, you're going to see costs go up because of a self-imposed tax we've put in place. So I still do think that if we do find ourselves in a recession, it's going to be because of the tariffs we've put in place.

Even if we don't enter a technical recession, what we're seeing now is that those tariffs are going to raise the cost for people when they go out to buy things. It's going to raise the cost of building homes, which is going to make it harder for people to get houses, which is ultimately going to have an impact on the economy that isn't what I think the president or anyone wants at this point.

Kyla: Is there anything else we haven’t asked about?

 I think the place where we continue, as a country, to struggle is that, given the federal system we have, many of these problems aren't just in Washington — they're in state and local governments as well. When you think about the challenges to building more housing in this country, you can't just solve it by doing things at the federal level. You have to get state and local governments unified in taking a proactive approach. Part of this has to be not just financial or regulatory from the federal government, but we have to do more things that force state and local governments to get out of the way of people being able to build more housing.

I think that the conversations that you've had on your show, and the conversations we're having in government, need to move past our regular policy conversations of: “Should we do more on LIHTC? Should we try to fix NEPA?” Those, to me, are table stakes, and we're in the middle of what I'd say is a generational crisis when it comes to housing. We have to be willing to treat it like a crisis, rather than what I think we've done so far, which is take incremental steps at different levels to try and solve this. That's one thing that I wanted to make sure that I said, because I think it's the most important thing that we can do at the moment.

Kyla: Absolutely. During your time there, the Treasury was doing so much with zoning reform, with financial incentives. What I really liked about our last conversation was how much you talked about how important it is that workers can live close to work. Are you optimistic that we will be able to address the problem, or do you think we are sinking into quicksand?

I'd say a little bit of both, and the thing that I'm doing now is getting hyperlocal. One of the projects I'm working on in my post-administration life is I'm working with 15 churches in D.C., where they have vacant land and want to use it to build affordable housing as quickly as possible.

I’m learning that even when you have the land donated for free and you're willing to work as quickly as possible, it's still quite hard because you have regulations and financial issues that often get in the way of building things. Part of what we have to do now is just launch as many natural experiments as possible to see what works.

What I've learned already from this lived experience is that even cities that are trying to get out of the way and make it easier to build housing struggle because of what you all know to be true, which is that the local politics of this is quite complicated. Oftentimes, the way that you get them over the line is by creating incentives or disincentives.

In the past, I talked a lot about incentives in terms of “giving people money to do things.” I'm now in favor of “not giving money to people who don't do things” — if you don't take steps to fix your zoning, some of the federal money that you regularly get is not coming to your jurisdiction. I'm going to reallocate that money to places that are doing this activity. I think we have to take those types of radical steps.

It's similar to what we did with the Emergency Rental Assistance Program, where if you didn't spend your money, we could take your money back and reallocate it to people who were giving away emergency rental assistance money.

That motivates people a lot — when they feel like something's going to be taken away from them. I’m of the view that we have to find more radical things that we can do to get housing built. If we don't, costs will continue to rise faster than people's incomes.

Santi: Wally, I have to ask after that point you just made: did you read the paper by my colleague Chris Elmendorf on using LIHTC funds? The idea is to re-allocate those federal funds away from big, expensive cities and into other places in a state, if the cities don't commit to basic zoning reforms.

I completely agree with him, and I think I would go even further than just LIHTC money. I would reallocate non-housing money as well, because from my standpoint, if you think about the most important issue for a family, it's being able to find housing that is affordable near their place of work and where their kids go to school. I said that on purpose. I didn't say “affordable housing.” I said “housing that is affordable,” because affordable housing is, in lots of ways, targeted towards a population of people who need it the most. But for even people who are middle income in this country, it crowds out their ability to pay for other things when housing costs continue to creep higher.

The only way we solve that problem is if you get rid of restrictive zoning covenants and fix permitting. The natural thing that every city and state is thinking about right now is throwing more money at the problem. There's going to need to be money here, just in light of some of the headwinds, but it's going to be more costly and less effective if we don't fix the underlying issues that are making it hard to build housing where we want it.

Right now in California, we're having a huge debate over what we do with infill housing in urban areas. A simple solution — you don't have to do another environmental review if one was already done in this area— is taking months to work through the California legislature, which demonstrates that we're going too slow. California's seeing an exodus of people. I just talked to a CEO who said, “I'm moving my business because the people who work for me can't afford to live in California anymore.” This is the kind of problem that you can solve. State legislatures, Congress, and executives have to get together and take some radical steps to make it easier to build housing.

I appreciate what you said about what we were doing at Treasury, but from my standpoint, I wish we had done more earlier to focus on this issue. We had a lot going on, but fundamentally, the most important thing on housing is taking a step to try and build housing today, which is going to have an impact on the economy 10, 20, 30 years from now. We just have to start doing that as soon as possible.

Thanks to Emma Hilbert for her transcript and audio edits.

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