History and development

Origins

In July 1776, during the American Revolutionary War, the Thirteen Colonies, acting jointly through the Second Continental Congress, declared themselves to be 13 independent sovereign states, no longer under British rule. Recognizing the necessity of closely coordinating their efforts against the British, the Continental Congress simultaneously began the process of drafting a constitution that would bind the states together. There were long debates on a number of issues, including representation and voting, and the exact powers to be given the central government. Congress finished work on the Articles of Confederation to establish a perpetual union between the states in November 1777 and sent it to the states for ratification.

Under the Articles, which took effect on March 1, 1781, the Congress of the Confederation was a central political authority without any legislative power. It could make its own resolutions, determinations, and regulations, but not any laws, and could not impose any taxes or enforce local commercial regulations upon its citizens. This institutional design reflected how Americans believed the deposed British system of Crown and Parliament ought to have functioned with respect to the royal dominion: a superintending body for matters that concerned the entire empire. The states were out from under any monarchy and assigned some formerly royal prerogatives (e.g., making war, receiving ambassadors, etc.) to Congress; the remaining prerogatives were lodged within their own respective state governments. The members of Congress elected a president of the United States in Congress Assembled to preside over its deliberation as a neutral discussion moderator. Unrelated to and quite dissimilar from the later office of president of the United States, it was a largely ceremonial position without much influence.

In 1783, the Treaty of Paris secured independence for each of the former colonies. With peace at hand, the states each turned toward their own internal affairs. By 1786, Americans found their continental borders besieged and weak and their respective economies in crises as neighboring states agitated trade rivalries with one another. They witnessed their hard currency pouring into foreign markets to pay for imports, their Mediterranean commerce preyed upon by North African pirates, and their foreign-financed Revolutionary War debts unpaid and accruing interest. Civil and political unrest loomed.

Following the successful resolution of commercial and fishing disputes between Virginia and Maryland at the Mount Vernon Conference in 1785, Virginia called for a trade conference between all the states, set for September 1786 in Annapolis, Maryland, with an aim toward resolving further-reaching interstate commercial antagonisms. When the convention failed for lack of attendance due to suspicions among most of the other states, Alexander Hamilton led the Annapolis delegates in a call for a convention to offer revisions to the Articles, to be held the next spring in Philadelphia. Prospects for the next convention appeared bleak until James Madison and Edmund Randolph succeeded in securing George Washington's attendance to Philadelphia as a delegate for Virginia.

When the Constitutional Convention convened in May 1787, the 12 state delegations in attendance (Rhode Island did not send delegates) brought with them an accumulated experience over a diverse set of institutional arrangements between legislative and executive branches from within their respective state governments. Most states maintained a weak executive without veto or appointment powers, elected annually by the legislature to a single term only, sharing power with an executive council, and countered by a strong legislature. New York offered the greatest exception, having a strong, unitary governor with veto and appointment power elected to a three-year term, and eligible for reelection to an indefinite number of terms thereafter. It was through the closed-door negotiations at Philadelphia that the presidency framed in the U.S. Constitution emerged.

Development

As the nation's first president, George Washington established many norms that would come to define the office. His decision to retire after two terms helped address fears that the nation would devolve into monarchy, and established a precedent that would not be broken until 1940 and would eventually be made permanent by the Twenty-Second Amendment. By the end of his presidency, political parties had developed, with John Adams defeating Thomas Jefferson in 1796, the first truly contested presidential election. After Jefferson defeated Adams in 1800, he and his fellow Virginians James Madison and James Monroe would each serve two terms, eventually dominating the nation's politics during the Era of Good Feelings until Adams' son John Quincy Adams won election in 1824 after the Democratic-Republican Party split.

The election of Andrew Jackson in 1828 was a significant milestone, as Jackson was not part of the Virginia and Massachusetts elite that had held the presidency for its first 40 years. Jacksonian democracy sought to strengthen the presidency at the expense of Congress, while broadening public participation as the nation rapidly expanded westward. However, his successor, Martin Van Buren, became unpopular after the Panic of 1837, and the death of William Henry Harrison and subsequent poor relations between John Tyler and Congress led to further weakening of the office. Including Van Buren, in the 24 years between 1837 and 1861, six presidential terms would be filled by eight different men, with none winning re-election. The Senate played an important role during this period, with the Great Triumvirate of Henry Clay, Daniel Webster, and John C. Calhoun playing key roles in shaping national policy in the 1830s and 1840s until debates over slavery began pulling the nation apart in the 1850s.

Abraham Lincoln's leadership during the Civil War has led historians to regard him as one of the nation's greatest presidents.D The circumstances of the war and Republican domination of Congress made the office very powerful, and Lincoln's re-election in 1864 was the first time a president had been re-elected since Jackson in 1832. After Lincoln's assassination, his successor Andrew Johnson lost all political support and was nearly removed from office, with Congress remaining powerful during the two-term presidency of Civil War general Ulysses S. Grant. After the end of Reconstruction, Grover Cleveland would eventually become the first Democratic president elected since before the war, running in three consecutive elections (1884, 1888, 1892) and winning twice. In 1900, William McKinley became the first incumbent to win re-election since Grant in 1872.

After McKinley's assassination, Theodore Roosevelt became a dominant figure in American politics. Historians believe Roosevelt permanently changed the political system by strengthening the presidency, with some key accomplishments including breaking up trusts, conservationism, labor reforms, making personal character as important as the issues, and hand-picking his successor, William Howard Taft. The following decade, Woodrow Wilson led the nation to victory during World War I, although Wilson's proposal for the League of Nations was rejected by the Senate. Warren Harding, while popular in office, would see his legacy tarnished by scandals, especially Teapot Dome, and Herbert Hoover quickly became very unpopular after failing to successfully combat the Great Depression.

Imperial Presidency

The ascendancy of Franklin D. Roosevelt in the election of 1932 led further toward what historians now describe as the Imperial Presidency. Backed by enormous Democratic majorities in Congress and public support for major change, Roosevelt's New Deal dramatically increased the size and scope of the federal government, including more executive agencies.:211–12 The traditionally small presidential staff was greatly expanded, with the Executive Office of the President being created in 1939, none of whom require Senate confirmation.:229–231 Roosevelt's unprecedented re-election to a third and fourth term, the victory of the United States in World War II, and the nation's growing economy all helped established the office as a position of global leadership.:269 His successors, Harry Truman and Dwight D. Eisenhower, were each re-elected as the Cold War led the presidency to be viewed as the "leader of the free world," while John F. Kennedy was a youthful and popular leader who benefitted from the rise of television in the 1960s.

After Lyndon B. Johnson lost popular support due to the Vietnam War and Richard Nixon's presidency collapsed in the Watergate scandal, Congress enacted a series of reforms intended to reassert itself. These included the War Powers Resolution, enacted over Nixon's veto in 1973, and the Congressional Budget and Impoundment Control Act of 1974 that sought to strengthen congressional fiscal powers. By 1976, Gerald Ford conceded that "the historic pendulum" had swung toward Congress, raising the possibility of a "disruptive" erosion of his ability to govern. Both Ford and his successor, Jimmy Carter, failed to win re-election. Ronald Reagan, who had been an actor before beginning his political career, used his talent as a communicator to help re-shape the American agenda away from New Deal policies toward more conservative ideology. His vice president, George H. W. Bush, would become the first vice president since 1836 to be directly elected to the presidency.

With the Cold War ending and the United States becoming the world's undisputed leading power, Bill Clinton, George W. Bush, and Barack Obama each served two terms as president. Meanwhile, Congress and the nation gradually became more politically polarized, especially following the 1994 mid-term elections that saw Republicans control the House for the first time in 40 years, and the rise of routine filibusters in the Senate in recent decades. Recent presidents have thus increasingly focused on executive orders, agency regulations, and judicial appointments to implement major policies, at the expense of legislation and congressional power. Presidential elections in the 21st century have reflected this continuing polarization, with no candidate except Obama in 2008 winning by more than five percent of the popular vote and two — George W. Bush and Donald Trump — winning in the Electoral College while losing the popular vote.E Both Clinton and Trump were impeached by a House controlled by the opposition party, but the impeachments did not appear to have long-term effects on their political standing.

Critics of presidency's evolution

The nation's Founding Fathers expected the Congress—which was the first branch of government described in the Constitution—to be the dominant branch of government; they did not expect a strong executive department. However, presidential power has shifted over time, which has resulted in claims that the modern presidency has become too powerful, unchecked, unbalanced, and "monarchist" in nature. Professor Dana D. Nelson believes presidents over the past thirty years have worked towards "undivided presidential control of the executive branch and its agencies". She criticizes proponents of the unitary executive for expanding "the many existing uncheckable executive powers—such as executive orders, decrees, memorandums, proclamations, national security directives and legislative signing statements—that already allow presidents to enact a good deal of foreign and domestic policy without aid, interference or consent from Congress". Bill Wilson, board member of Americans for Limited Government, opined that the expanded presidency was "the greatest threat ever to individual freedom and democratic rule".