The Uncommon Legacy of Two-Term, Non-Consecutive Presidents: Grover Cleveland and Donald Trump
Throughout U.S. history, only two presidents have served two non-consecutive terms: Grover Cleveland, the 22nd and 24th president (1885–1889, 1893–1897), and Donald Trump, the 45th and 47th president (2017 to 2021, 2025 to ?) after securing re-election in 2024. Both men navigated unique political landscapes, shaped public opinion during interstitial years, and faced challenges that set them apart in presidential history. This article examines their first terms, what they did to remain relevant between terms, the presidencies in between, and their second-term dynamics, highlighting key historical and political concepts, legislation, and accomplishments.
Grover Cleveland’s First Term (1885–1889)
Grover Cleveland’s first term was marked by his steadfast commitment to reform, fiscal conservatism, and opposition to political corruption during the Gilded Age. Cleveland rose to prominence as a reformer governor of New York and entered the presidency with similar goals.
Key Accomplishments:
- Civil Service Reform: Cleveland championed merit-based hiring and reduced patronage. Building on the Pendleton Civil Service Reform Act (1883), Cleveland increased the percentage of federal jobs covered by merit-based rules.
- Interstate Commerce Act (1887): This legislation sought to regulate railroads, marking the federal government’s first significant intervention in economic affairs. It established the Interstate Commerce Commission to oversee fair rates and practices.
- Tariff Policy: Cleveland strongly opposed high tariffs, which he saw as benefiting industrialists at the expense of consumers. In his annual message to Congress in 1887, he framed tariff reform as a moral imperative, though Republicans blocked significant changes.
- Veto Record: Cleveland vetoed 414 bills, including many pension bills he deemed excessive. This assertive use of executive power underscored his commitment to reducing waste and fraud but alienated some groups.
Economic and Statistical Context:
- Population: The U.S. population in 1885 was approximately 55 million.
- Economic Growth: The U.S. economy was expanding rapidly during the Gilded Age, driven by industrialization, though wealth inequality was stark.
- Election Statistics (1884): Cleveland won the presidency with 4.87 million votes (48.9% of the popular vote) to James G. Blaine’s 4.85 million (48.3%). In the Electoral College, Cleveland secured 219 votes to Blaine’s 182.
Media and Public Perception:
Cleveland was perceived as a man of integrity and honesty, earning him the nickname “Grover the Good.” However, his opposition to veterans’ pensions and high tariffs drew criticism. The media, divided along partisan lines, often praised his reformist stance while attacking his policy decisions.
Donald Trump’s First Term (2017–2021)
Donald Trump’s presidency ushered in a new era of political disruption, characterized by populism, nationalism, and direct communication with the public via social media. Trump campaigned as an outsider who would “drain the swamp” in Washington.
Key Accomplishments:
- Tax Cuts and Jobs Act (2017): This legislation reduced the corporate tax rate from 35% to 21% and provided temporary tax cuts for individuals. It contributed to economic growth, with GDP growth reaching 2.9% in 2018.
- Judicial Appointments: Trump appointed 234 federal judges, including three Supreme Court justices. This reshaped the judiciary, solidifying a conservative tilt for decades.
- Deregulation: Trump eliminated numerous federal regulations, particularly in energy and environmental sectors, fostering business growth but sparking environmental concerns.
- Abraham Accords (2020): Trump brokered historic peace agreements between Israel and several Arab nations, earning international recognition.
- Criminal Justice Reform: The First Step Act (2018) aimed to reduce recidivism and reform sentencing laws, gaining bipartisan support.
Economic and Statistical Context:
- Population: The U.S. population in 2017 was approximately 325 million.
- Economic Growth: Unemployment fell to a 50-year low of 3.5% by 2019, though the COVID-19 pandemic reversed these gains in 2020.
- Election Statistics (2016): Trump won the presidency with 62.98 million votes (46.1% of the popular vote) to Hillary Clinton’s 65.85 million (48.2%). In the Electoral College, Trump secured 304 votes to Clinton’s 227.
Media and Public Perception:
Trump’s relationship with the media was contentious. He frequently criticized mainstream outlets as “fake news,” while conservative media praised his policies. His use of Twitter allowed him to bypass traditional media channels and communicate directly with supporters.
Comparing the Two Presidents’ First Terms
Grover Cleveland’s and Donald Trump’s first terms represent two contrasting approaches to governance, shaped by the historical contexts of their presidencies. Cleveland’s tenure was rooted in the post-Reconstruction era, emphasizing fiscal conservatism and a noninterventionist foreign policy. His administration tackled issues like corruption and railroad regulation, laying the groundwork for future economic oversight. In contrast, Trump’s presidency was defined by bold reforms, economic growth, and a combative style that disrupted traditional political norms.
Economically, both presidents presided over periods of growth, but the scale and nature of their economies differed vastly. Cleveland’s America was an industrializing nation with a population of 56 million, while Trump governed a technologically advanced, globally interconnected country of 325 million people. Cleveland focused on balancing the federal budget and reducing tariffs, whereas Trump prioritized tax cuts and reshaping trade agreements to favor American interests.
On international relations, Cleveland adhered to a policy of nonintervention, avoiding entanglements abroad. Trump, by contrast, engaged in trade wars and redefined alliances, often challenging traditional diplomatic norms. His “America First” approach contrasted sharply with Cleveland’s quiet diplomacy.
Both presidents faced significant opposition from the media, though the nature of this opposition reflected their eras. Cleveland’s clashes with the press were less pervasive, while Trump’s adversarial relationship with the media was amplified by the 24-hour news cycle and social media platforms.
In terms of public perception, Cleveland was admired for his honesty and integrity, earning him a reputation as a reformer. Trump’s presidency, meanwhile, was polarizing, with staunch support from his base and strong opposition from his critics. Despite their differences, both presidents demonstrated resilience, leveraging their unique strengths to remain relevant in the political arena.
The Years In Between: Staying Relevant
Grover Cleveland (1889–1893):
After losing the 1888 election to Benjamin Harrison, Cleveland returned to private life but remained politically active. He criticized Harrison’s high-tariff policies and maintained a reputation for honesty and fiscal prudence, securing his re-nomination in 1892.
Donald Trump (2021–2024):
Following his 2020 loss to Joe Biden, Trump continued to dominate the Republican Party. Through rallies, endorsements, and the launch of Truth Social, Trump stayed at the forefront of conservative politics. His criticism of Biden’s handling of inflation, energy policy, and foreign affairs galvanized his base.
The Presidents In Between
Benjamin Harrison (1889–1893):
Harrison’s presidency emphasized protectionism, culminating in the McKinley Tariff (1890), which raised tariffs significantly. While this policy pleased industrialists, it led to higher consumer prices and contributed to Republican losses in the 1890 midterms. Harrison also signed the Sherman Antitrust Act (1890), laying the groundwork for antitrust enforcement.
Joe Biden (2021–2024):
Biden’s presidency focused on pandemic recovery, infrastructure investment, and addressing climate change. However, challenges such as inflation, the Afghanistan withdrawal, and immigration issues created openings for Trump’s critiques.
Cleveland’s Second Term (1893–1897)
Cleveland’s second term was defined by the Panic of 1893, one of the worst economic depressions in U.S. history. His commitment to the gold standard and opposition to free silver alienated segments of his party.
Key Actions and Challenges:
- Panic of 1893: Cleveland repealed the Sherman Silver Purchase Act to stabilize the economy but faced backlash from populists.
- Labor Unrest: The Pullman Strike (1894) resulted in Cleveland deploying federal troops to break the strike, leading to violent clashes and criticism from labor groups.
- Economic Impact: Unemployment soared, and banks failed, undermining Cleveland’s popularity.
Success and Legacy:
Cleveland’s second term is often viewed as less successful due to his handling of economic and labor crises. However, his dedication to principle over political expediency remains a hallmark of his legacy.
Projections for Trump’s Second Term
Trump’s second term will focus on solidifying his policies and addressing unfinished business from his first term.
Potential Priorities:
- Immigration: Trump will clearly pursue stricter border controls and expanded deportation policies.
- Economy: Tax cuts, deregulation, and energy independence would remain central to his agenda.
- Judiciary: Further judicial appointments would entrench conservative influence.
- Foreign Policy: Trump’s “America First” doctrine may lead to renegotiated trade deals and reduced international commitments.
Challenges:
A second Trump term will face heightened polarization, ongoing legal battles, and potential resistance from Congress. However, his strong base of support could enable him to navigate these obstacles.
International Relations:
Trump’s foreign policy would likely emphasize unilateralism, with potential impacts on NATO, trade alliances, and relations with adversaries such as China and Russia. Military spending and strategic positioning would likely remain priorities.
Media and Public Perception:
Trump’s polarizing relationship with the media might continue, with conservative outlets amplifying his achievements and mainstream outlets critiquing his administration. Social media would remain a key tool for rallying his base.
Conclusion
Cleveland and Trump share the rare distinction of serving non-consecutive terms, but their presidencies reflect vastly different eras and priorities. Cleveland’s reformist agenda and adherence to fiscal conservatism contrast sharply with Trump’s populist nationalism and emphasis on deregulation. While Cleveland’s second term struggled under economic and political challenges, Trump’s potential second term presents an opportunity to redefine his legacy in a deeply divided nation. Both men’s trajectories underscore the resilience of American democracy and the complexities of presidential leadership.
