It was accordingly stigmatized as
"monarchical," and Jefferson (though without formally alleging any
such reason) set the example, which has been followed ever since,
of addressing Congress in a written message.[19] Besides this annual
message, the president may at any time send in a special message
relating to matters which in his opinion require immediate attention.
[Footnote 19: Jefferson, moreover, was a powerful writer and a poor
speaker.]
The effectiveness of a president's message depends of course on the
character of the president and the general features of the political
situation. That separation between the executive and legislative
departments, which is one of the most distinctive features of civil
government in the United States, tends to prevent the development of
leadership. An English prime minister's policy, so long as he remains
in office, must be that of the House of Commons; power and responsibility
are concentrated. An able president may virtually direct the policy of
his party in Congress, but he often has a majority against him in one
house and sometimes in both at once. Thus in dividing power we divide
and weaken responsibility.
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