One of the most astute and frequently quoted observers of the presidency was Richard Neustadt, author of the influential 1960 book Presidential Power. His most famous quote is: “The power of the presidency is the power to persuade.”
For much of our country’s history, the president’s ability to persuade became a lightning rod for success in office. The prominence of this concept has accelerated in the past 90 years as the presidency evolved into the modern, global, media and social media- driven age. Inspiring and motivating others to support their vision, plans and solutions has become a key focal point for successive administrations.
A sure marker for the acceleration of this concept is its inclusion in C-Span’s survey of historians. Public persuasion is one of ten factors used to rate the success of a presidential administration. The most recent C-Span survey was published in 2017. It ranked all the presidents, the top ten in public persuasion were:
- Franklin D. Roosevelt
- Theodore Roosevelt
- Abraham Lincoln
- George Washington
- Ronald Reagan
- John F. Kennedy
- Andrew Jackson
- Thomas Jefferson
- Bill Clinton
- Barack Obama
However, just what does it mean to be an effective presidential persuader? Convincing Congress to pass the laws you desire? Giving a great speech? Getting elected in the first place or getting re-elected? Bringing on successful cabinet members? Convincing other countries to go to war with you?
On average, most presidents have been mediocre persuaders. Why would that be the case when they have the immense power of the presidency and the White House apparatus at their disposal?
In looking at those at the top, these presidents have been able to build a shared vision among their targeted influence group. At any point in time, that might be the Senate, the House of Representatives, an individual leader, the head of a foreign government, or the American people as a whole. The absence of a shared vision generally results in defeat for the president’s ideas.
Yes, it’s helpful if they can give a great speech. With the exception of Washington, who persuaded by example, and Jefferson, who persuaded with his pen, all the others in the top ten above were very effective speakers. Speaking well counts for much in getting elected, but giving great speeches rarely gets the job done in office when a shared vision is lacking.
For example, in 1993-1994, Bill Clinton made hundreds of speeches about his vision to overhaul the American health care system. He used all the levers of persuasion he could find but ultimately failed. Why? He lacked a shared vision with the Congress, who dug in their heels and refused to move ahead. In political terms, he didn’t have the votes.
Some observers have concluded that the more a president advocates for a measure, the less likely they are to achieve it, particularly in our modern ‘we win, they lose’ dynamic. The very reality of laying out an agenda makes it harder to accomplish. But, they keep doing it, because not to push for your agenda is seen as being uncertain about it. In Frances Lee’s book Beyond Ideology (2009), she argues that “the president’s attempts at persuasion might have the perverse effect of making it harder to govern.”
All that said, there are many examples of successful presidential persuasion. Some of the most memorable are:
John F. Kennedy’s ‘we choose to go to the moon’ program. He kicked it off with a memorable speech and was able to build a shared vision that American could overtake the Soviets and reach the moon by the end of the decade.
Franklin Roosevelt was expert at connecting with everyday Americans. He developed great empathy for rural people from his Warm Springs Georgia polio rehabilitation facility, mixing with them for weeks and months at a time.
Military experience also brings a person closer to real people. Commanding soldiers in battle is highly valued as sharing a purpose with higher values in mind. Military leaders George Washington, Zachary Taylor, Ulysses Grant, Willam McKinley, Theodore Roosevelt, Harry Truman, and Dwight Eisenhower all benefited in the eyes of the public, ramping up the shared vision needed to get things done.
Being an effective storyteller can also help. Lincoln was renowned for his home-spun stories that made a point. To urge Americans to support the Lend-Lease program in 1940, Franklin Roosevelt used a story about “lending your garden hose to your neighbor if his house is on fire”. Many could relate to that image and approved of lending ships and war materials to England to fight Hitler.
Having a memorable line can also push an agenda forward. Franklin Roosevelt kicked off his administration in the depths of the depression, stating “The only thing we have to fear is fear itself”. John F. Kennedy’s “ask not what your country can do for you. Ask what you can do for your country” is a peak example of setting a vision in a memorable way.
It’s a rare presidency that forms at the confluence of adequate votes in Congress, world events, and voter desires that can coalesce into a shared vision. When these factors come together, let the successful persuading begin.
Interested in learning more about the presidents? Visit the Carolyn & James Millar Presidential Gallery on the upper level of the Booth Western Art Museum. The gallery features original letters and photographs of every U.S. president. Learn more at www.boothmuseum.org.
