ABSTRACT
In David Mayhew's book Divided We Govern, he argued that presidential leadership regarding Congress "has three necessary components: an agenda, will, and skill." Presidential agendas, the first of Mayhew's components, can be expansive or limited—the degree to which a president can control the agenda depends on what opportunities he or she is afforded. During World War II, the military was a markedly different organization. The massive land-based air forces the US contributed to campaigns in Europe and in the Pacific were actually part of the Army—the US Army Air Corps. The Department of War constituted only the US Army; the US Navy was entirely separate, operated by the Department of the Navy. The Constitution states that the government is permitted to "provide and maintain" a navy, but only to "raise and support" an army. There are a number of reasons for this language, but two stand out.
