It's actually wild what the executive can get done in an election year... With the side effect of dangling bait for legislators to take a contrarian, nationally unpopular position.
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In a presidents first term they are incentivized to do just enough to not piss of the other side enough to get some crazy numbers out but do enough to appease the current voters that they tried.
But then in the second term any worry about being re-elected goes out the window.
Like I am still convinced that Obama was in support of gay marriage before he publicly said it, and just waited until after he was re-elected. At that point what was he going to loose?