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Or he tried getting through via legislation because he knew that’d be much faster, but only once he knew he didn’t have the votes for it, he then pivoted to the slower executive action
There was a bill passed in 2022 in the house to do exactly that which ran into roadblocks in the senate
https://www.congress.gov/bill/117th-congress/house-bill/3617
Funny how that always happens on things Democrats never had any intention of ever doing.