What were the major nongovernmental actors that changed the trajectory of the pandemic? What was the role of private research organizations? How well did they coordinate with federal agencies? How much conflict is inherently built into the system as a result of different constituencies, different incentives, official resistance, and uncertainty over policy goals? For example, think of the scramble over PPE in early 2020 (when the federal government was confiscating and redistributing the supplies of state governments) .