How would you explain it? It seems either entirely ideological on the part of its architects, cynically designed to appeal to a political base that has been inculcated with that ideology, or cynically designed to enrich its architects' political and business allies under cover of appealing to a political base that has been inculcated with that ideology. Possibly some combination of those three. But the core issue is opposition to and misrepresentation of scientific consensus, on the part of an administration that has referred to its political opponents as "the enemy from within".