“it is difficult to coordinate opposition to any program that benefits few at the expense of many because of the transactions costs of political activity. Second, taxpayers cannot easily identify the allocation of costs and benefits from bailouts, which is determined not by the courts but by a deposit-insurance resolution authority operating within the government under opaque circumstances and ad hoc arrangements. Third, because taxpayers are sometimes depositors, they may not be able to determine whether they are better or worse off as a result of the government’s intervention.”