The Puzzle of Presidential Leadership: Persuasion, Bargaining, and Policy Consistency

Political science can offer few theoretical generalizations about the exercise of presidential power. From one perspective, this is no disadvantage: there are few presidents, and presidential leadership so intrinsically involves the interplay of ideas and persuasive deliberation that success depends on personal traits and the fit of the president's ideas with the times. Striving for inductive generalizations in such a case would mistake rote scientific method for the pursuit of knowledge. Others argue, however, that the dearth of theoretical generalizations is a temporary weakness, remediable by shifting to a deductive approach. Deductive theorizing can claim insights in other areas once typified by historiographic methods, notably in studies of Congress, and formal models of legislation have been extended to generate hypotheses about transactions between president and Congress. I suggest that neither side of the dilemma offers a satisfactory and complete approach to the puzzle of presidential leadership; it then goes on to specify how the contributions from each side fit together. Rational choice models, based on bargaining as the mode of influence and the repeated game as the image of process, show how institutional structures can produce stable decisions where majority rule tends toward endless cycling. But the cost is that the resulting decisions are typically ad hoc and disjointed. Achieving consistent and coherent policy requires more subtle coordination of individual expectations than legislative organizations can manage, and it is this limitation of bargaining that establishes the potential for presidential leadership. Presidents can attempt to capitalize on this opportunity either by intervening as an additional (but situationally advantaged) bargainer, or by employing persuasion, the explicit appeal to collective goals rather than particularistic trades. I develop the distinction between bargaining and persuasion as alternative strategies of advocacy, and illustrate their use with examples from President Reagan's interactions with Congress over his key economic policy proposals.     

Presidential Coattails and Legislative Fragmentation

Considerable evidence suggests that legislative fragmentation can negatively affect the survival of democratic presidential regimes. While there is a vast literature examining the determinants of legislative fragmentation, one factor that has traditionally been overlooked is the impact of presidential elections. Do presidential elections increase or decrease legislative fragmentation? Does it matter if presidents are elected by plurality rule or by runoff? Using a new dataset that covers all democratic legislative and presidential elections between 1946 and 2000, I find that presidential coattails can reduce, increase, or have no effect on legislative fragmentation depending on the number of presidential candidates. I also find strong evidence that social heterogeneity increases the number of presidential candidates when runoff systems are employed. Taken together, these results suggest that the widespread adoption of runoffs by newly democratic presidential regimes will likely increase legislative fragmentation, thereby putting their democratic survival at increased risk.     

Policy Preference Formation in Legislative Politics: Structures, Actors, and Focal Points

This article introduces a model of policy preference formation in legislative politics. Emphasizing a dynamic relationship between structure, agent, and decision-making process, it ties the question of policy choice to the dimensionality of the normative and cognitive political space and the strategic actions of parliamentary agenda setters. The model proposes that structural factors, such as ideology, shape policy preferences to the extent that legislative actors successfully link them to specific policy proposals through the strategic provision of focal points. These ideas or images shift attention toward particular aspects of a legislative proposal, thus shaping the dominant interpretation of its content and consequences. This interpretation affects both individual-level policy preferences and policy outcomes. The propositions of the focal-point model are tested empirically in a detailed examination of European Union legislation on cross-border takeover bids, using both qualitative and quantitative methods.     

Three Bush Administration Management Reform Initiatives: The President's Management Agenda, Freedom to Manage Legislative Proposals, and the Program Assessment Rating Tool

In response to the foregoing essay by James P. Pfiffner on President George W. Bush's legacy as a public administrator, this essay takes a practical look at three government-wide Bush administration management reform initiatives: the President's Management Agenda, the Freedom to Manage legislative proposals, and the Program Assessment Rating Tool.     

Managing the Entanglement: Complexity Leadership in Public Sector Systems

Complexity in public sector systems requires leaders to balance the administrative practices necessary to be aligned and efficient in the management of routine challenges and the adaptive practices required to respond to dynamic circumstances. Conventional notions of leadership in the field of public administration do not fully explain the role of leadership in balancing the entanglement of formal, top‐down, administrative functions and informal, emergent, adaptive functions within public sector settings with different levels of complexity. Drawing on and extending existing complexity leadership constructs, this article explores how leadership is enacted over the duration of six urban regeneration projects representing high, medium, and low levels of project complexity. The article suggests that greater attention needs to be paid to the tensions inherent in enabling leadership if actors are to cope with the complex, collaborative, cross‐boundary, adaptive work in which they are increasingly engaged.     

Ministerial Leadership and Endorsement of Bureaucrats: Experimental Evidence from Presidential Governments

Scholars have debated what constitutes effective ministerial leadership with respect to administrative competence versus political influence. The authors contribute experimental evidence to this debate through a unique survey design of endorsement experiments. Using original data from 949 national civil servants in South Korea, this article examines civil servants’ assessments of ministerial leadership in three central dimensions of public management: internal management, interbranch coordination, and policy formulation/implementation. Further, existing variation in the characteristics of agencies is used to test whether such variation induces systematic differences in civil servants’ responses. Findings show that that civil servants’ attitudes toward ministerial leadership are asymmetric in nature. Ministers with civil service backgrounds are endorsed in all three dimensions, whereas ministers with legislative backgrounds receive increased support only for interbranch coordination skills. The levels of support for ministers with different backgrounds also vary across agency types. This analysis has implications for public management practice and agency control in presidential governments.     

Managing the Environment: Rhetoric, Policy and Reality

This article argues that, despite environmental issues climbing higher on the political agenda and considerable recent policy activity, rhetoric is not matched by reality in our efforts to manage the Australian environment. We integrate the imperatives emerging from the policy and sustainability literatures and from actual policy, with detailed work on wildlife conservation in Victoria's Central Highlands. Our analysis demonstrates that, rather than undertaking the more intensive policy and 'adaptive management' that is needed, governments are often doing less and may actually be 'taking their hands of their wheel'. Some public policy and administration implications of the emerging policy field of sustainability are illustrated.     

Managing Competing Values: Leadership Styles of Mayors and CEOs

The mayor and CEO play an important complementary role in local economic and community development. As the head of the elected council the mayor has a close working relationship with the CEO of the council organisation. Each has the opportunity to influence the policy and administration functions of council. The quality of their working relationship influences the quality of local governance in their community. In this study 413 pairs of Australian mayors and CEOs responded to metaphors assessing the effectiveness of their working relationship with each other. They also completed Cameron's Management Skills Assessment Instrument. Effective working relationships are more likely to occur when their managerial style complements or is the same as the other, on Cameron and Quinn's Competing Values Framework. The implications for CEOs are discussed along with strategies for enhancing the working relationship with their mayor.     

Getting Dirty-Minded: Implementing Presidential Policy Agendas Administratively

With polarization in Congress persistent, with staggering issues and international threats facing the nation, and with fiscal stress an enduring fact of life, presidents have for decades turned to the tools of the administrative presidency to advance and implement their policy agendas. As the Barack Obama administration completed its first six months in office amid great challenges and hopes, the president was no exception in counting on his appointees to wield the tools of the administrative presidency to advance his protean policy agenda for America. This essay offers 10 research-based lessons for new appointees charged with advancing presidential agendas administratively to ponder as they do so.