As the Nazi regime developed over the years, the whole structure of decision-making was changed. At first there were laws. Then there were decrees implementing laws. Then a law was made saying, 'There shall be no laws.' Then there were orders and directives that were written down, but still published in ministerial gazettes. Then there was government by announcement; orders appeared in newspapers. Then there were the quiet orders, the orders that were not published, that were within the bureaucracy, that were oral. And finally, there were no orders at all. Everybody knew what he had to do.
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But what began in 1941 was a process of destruction not planned in advance, not organized centrally by any agency. There was no blueprint and there was no budget for destructive measures. They were taken step by step, one step at a time. Thus came about not so much a plan being carried out, but an incredible meeting of minds, a consensus - mind reading by a far-flung bureaucracy.
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