The central contradiction of Donald Trump’s reelection is this: He owes his victory to the fact that millions of voters appear to have seen him as the stability candidate who would usher in a return to pre-COVID normalcy. But he has put forward a second-term agenda that would be far more radical and disruptive than anything he accomplished while in office.

To much of the country, the notion of Trump as the return-to-normal candidate is laughable. His first term involved two impeachments, intense national protests, a flailing pandemic response, and, as a capstone, a violent attempt to defy the results of the 2020 election. But many voters, perhaps most, see things differently in retrospect. In a New York Times poll conducted toward the end of Trump’s first term, just 39 percent of voters said that the country had been better off since he took office; in a version of the poll conducted in April of this year, nearly 50 percent did. An NBC poll conducted weeks before last Tuesday’s election similarly found that a plurality of voters believed that Trump’s policies had helped their families and that Biden’s had hurt them.

In 2016, Trump voters wanted change—disruptive, confrontational change—and believed that their man would deliver it. They described Trump as a “middle finger” to the establishment and “a wrecking ball” aimed at the status quo. Eight years later, voters once again overwhelmingly said they want change, but the kind of change was very different: a reversion to the perceived better times of the first Trump administration, before inflation and a border crisis took hold under Joe Biden. “In my assessment of the dynamics of this election, what I see and hear is an electorate that seems to be craving stability in the economy, in their finances, at the border, in their schools and in the world,” the Republican pollster Kristen Soltis Anderson wrote last year, summarizing the findings of her frequent focus-group discussions. Trump seized on this dynamic, encouraging voters to remember how good they had it when he was in office.  

[Annie Lowrey: Voters wanted lower prices at any cost]

“Less than four years ago our border was secure, inflation was nowhere to be seen, the world was at peace, and America was strong and respected,” he declared at a rally earlier this year.

Even as Trump promised a return to happier times, however, he campaigned on an agenda that seems bound to generate conflict and chaos. His promise to carry out the “largest deportation effort in American history” would involve law-enforcement raids at workplaces and homes across the country. His plan to purge the federal government of insufficiently loyal bureaucrats would leave agencies struggling to carry out their basic tasks. His proposal to impose heavy tariffs on all imports would raise consumer prices and could trigger a series of retaliatory trade wars. Some of his ideas, such as directing the Department of Justice to go after his political opponents and inviting the nation’s most prominent vaccine skeptic to help set federal health policy, depart so flagrantly from established political norms that the consequences are impossible to predict. Given all that, how did Trump win over so many voters who just want things to go back to normal?

One answer is that even Trump’s own voters don’t think he’ll act on many of his proposals. As my colleague David A. Graham wrote last month, “Trump exists in a strange zone where voters hear what he’s saying and then largely discount it, perhaps as a result of his past dissembling, or perhaps because the ideas just seem too extreme to be real.” In one poll taken right before the election, just two-thirds of his supporters said the former president was “serious” about mass deportations; only 38 percent and 21 percent, respectively, said the same about using the military against U.S. citizens and prosecuting his political opponents, both of which Trump has said he would do. When asked why they don’t take Trump’s proposals seriously, voters tend to give the same answer: The media made many similar warnings last time, heading into Trump’s first term, and things never got all that bad. The economy kept humming; the Affordable Care Act never got repealed; the U.S. didn’t get into any major wars.

It’s true that the most dire predictions for the first Trump presidency never materialized. But there’s a very specific reason for that: The institutions and people surrounding Trump prevented him from acting on his worst impulses. The courts struck down more than 70 of Trump’s policies in his first three years alone. The ACA was narrowly saved by a handful of moderate Republicans, most prominently John McCain. Trump’s own vice president refused to negate the 2020 election results. Trump’s staffers repeatedly thwarted his more bizarre ideas and musings. “Everyone at this point ignores what the president says and just does their job,” a senior national-security official told CNN’s Jake Tapper in 2019.

[Daniel Block: The Democrats’ Senate nightmare is only beginning]

In this sense, the “deep state” that Trump blames for his problems deserves some of the credit for his reelection. The limited damage of Trump’s first term reflected an entire apparatus of staffers, civil servants, and institutions that prevented him from doing everything he wanted to do.

Things will likely be different this time. The Supreme Court recently held that presidents are immune from prosecution for anything that qualifies as an “official act,” which it hinted is a broad category. The Republican congressional caucus has mostly purged itself of anyone willing to defy Trump. And Trump’s inner circle is focused on staffing the government with loyalists. The guardrails are largely gone.

“I will govern by a simple motto,” Trump proclaimed in his victory speech last week: “Promises made, promises kept.” Americans often fault politicians for not keeping their word. Swing voters who opted to give Trump a second chance might soon find themselves raising the opposite complaint.