Abstract
Scholars have traditionally and loosely defined executive orders as presidential directives that instruct bureaucrats about how to implement policy. In contrast, proclamations are thought to be used by presidents to address policy matters regarding the general public. This has been an assumption that scholars have accepted without empirical evidence. We have long known that presidents strategically pursue policy to build support among numerous groups, such as African Americans, religious organizations, women, educators, and labor unions. Presidency scholars also know that executive orders are an expedient tool that an administration utilizes to pursue its policy agenda. As a result, why should we assume that the exclusive target population of executive orders is members of the federal bureaucracy? This is the first study to explore whether and how presidents from 1936 through 2008 use executive orders to target specific populations with policy.
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