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Lead times increasing to four years doesn't necessarily mean that every order will take that long. Since the additional orders are just there to cover idle periods, the government could omit an expected delivery time so regular orders don't get delayed.

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I think that would mean that the factory would switch from operating at 100% capacity (and never catching up), to 100% capacity (and never catching up).

For that kind of sameness, it seems like it'd be easier to do nothing at all.

It is still strictly better since the actual customers get priority.

the point is that the thing they would never be catching up on would be the surplus orders from the government.

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