How Biden could steer a divided government

It’s easy to imagine ways Joe Biden’s presidency might open very badly. COVID-19 may still be spiking. The economy could slip back into recession. Mitch McConnell might still control the Senate. Donald Trump will be unleashed as National Narrator.

Things don’t get much better in the unlikely event Democrats capture both of Georgia’s Senate seats to achieve a 50-50 tie, broken by the Democratic vice president.

Republicans, freed fromall responsibility, will go into full opposition mode, and nothing will pass when 60 votes are needed to overcome a filibuster. Democrats will try to govern with a razor-thin majority controlled by several relatively conservative Democrats. So Democrats will have ownership of the government without the means to deliver.

Howcan Biden and team dealwith this challenging circumstance?

One way was proposed by Sen. Elizabeth Warren in a Washington Post op-ed this week: Use executive orders. She suggested some obvious moves Biden absolutely should make on Day 1— like reentering the Paris climate accord— but also suggested some big and expensive unilateral policy changes: raising the minimumwage for federal contractors to $15, canceling billions of dollars in student debt.

With all due respect to Warren, opening the Biden era by stiff-arming Congress and ordering all sorts of big policy changes by presidential diktat could knock the legs out fromthe Biden presidency.

Abetter approach starts with the understanding that Biden’s policies remain popular. Democrats underperformed in congressional races because voters hate political correctness, “defund the police” and “socialism.”

Abetter approach would, next, be about finding policy measures that can win 60 Senate votes.

This is actually not that hard. I spoke to Sen. Mitt Romney thisweek, and he ticked off a series of areas where hewas optimistic the parties could work together: fix prescription drug pricing and end surprise billing; an immigration measure that helps the Dreamers and includes E-Verify; an expanded child tax credit; green energy measures.

Isabel Sawhill, the long-term Democratic adviser nowat the Brookings Institution, reeled offa few more: expanding national service, student debt forgiveness, amiddle-class tax cut.

Oren Cass of American Compass, which is Republican-leaning, pointed out that therewere a lot of newly emerging issues that the two parties haven’t yet had time to get polarized about. Common action could be envisioned there: an infrastructure bank, reshoring U.S. supply chains so we’re not so dependent on China, expanding non-college career pathways, industrial policy to benefit the Midwestern manufacturing base.

Finding areas of agreement is easy. Getting them to the Senate floor for a vote under McConnell would be harder. His priority has always been winning GOP majorities, not necessarily governing. But a number of steps could be taken. First, Bid en could try to convince McConnell it’s in his interest to allow votes, at least in the first year.

Republicans will be defending open Senate seats in places like Pennsylvania and North Carolina in 2022.

Second, deal-making and moderate senators could form bipartisan gangs around specific issues and try to force McConnell’s hand.

Many senators of both parties are already frustrated by howmany possibly successful bills simply get bottled up and never reach a vote. “I don’t knowwhat the calculation is that goes on in the mind of the leaders aboutwhat to take to the floor, butwe don’t vote on a lot of legislation,” Romney toldme.

At this point the threat of executive orders comes in handy. If the White House makes a good-faith effort towork in a bipartisan way, if senators come together to craft legislation, and still nothing passes, then Biden will havemore justification for doing what Warren suggests.

Given the likely division of power, Biden is not going to lead an FDR-style New Deal administration.

But there is a path for him to pass a important pieces of legislation thatwould help millions of Americans.