“Washington is broken,” Barack Obama, the Democratic nominee for president, said in September 2008. “My whole campaign has been premised from the start on the idea that we have to fundamentally change how Washington works.”

There are three ways that Washington works: compromise, crisis and clout. Compromise is the way Washington is supposed to work. It’s practically mandated by the Constitution, with its complex system of checks and balances and separation of powers. It’s the way the U.S. government has worked for more than 200 years.

But it’s not working very well any more. Party positions have dug in. Deal-making is harder now that there are fewer moderates in Congress. It has taken more than two years for the House of Representatives to pass a farm bill, and it’s already under attack by both conservatives and liberals.

Congress did pass a budget deal last month, and there’s a reasonable chance that some version of immigration reform will go through this year. In both cases, the driving force is fear. Congressional Republicans are desperate to avoid another government shutdown over the budget. They are also determined to avoid a repeat of 2012, when minority voters, angry over Republican opposition to immigration reform, voted overwhelmingly Democratic.

Things can get done quickly in Washington if there’s a sense of crisis in the country. It took only a few weeks after September 11 to pass the Patriot Act, for example. The financial crisis of 2008 drove a whole slew of legislation — from the government bailouts under President George W. Bush to Obama’s economic stimulus plan.

“You never want a serious crisis to go to waste,” Rahm Emanuel, Obama’s first chief of staff, remarked early in the first term. “And what I mean by that is an opportunity to do things you think you could not do before.”

But a crisis cannot be declared. It has to be real. Voters have to feel an overwhelming sense of urgency. That’s why politicians are always hyping issues. They declare an education crisis or an environmental crisis or an energy crisis. Or they try to rally the country to fight a “war” on something — a war on crime, a war on drugs, a war on poverty, a war on terror. If the public urgency is not authentic, however, opponents won’t have much trouble blocking government action.

Recently, Democrats have been talking about a growing crisis over income inequality. “Those at the top have never done better,” the president said Tuesday night. “But average wages have barely budged. Inequality has deepened.”

The income gap between rich and poor in the United States is the widest of 10 advanced countries, according to the Pew Research Center. But fewer than half of Americans think it’s a big problem. That’s the lowest level of concern of any country except Australia, which has a much smaller income gap.

Obama is counting on the inequality issue to get two significant pieces of legislation through Congress this year: an increase in the federal minimum wage, which was last raised to $7.25 an hour in 2009, and an extension of benefits for the long-term unemployed.

“This Congress needs to restore the unemployment insurance you just let expire for 1.6 million people,” Obama told Congress.

The measures are far from certain to pass. Which is why the president decided to resort to Option 3 — clout. The White House calls it a “pen and phone” strategy. Use the pen to sign executive orders. Use the phone to persuade private operations to adopt policies that are in the public interest. No congressional action required.

During the State of the Union, the president singled out the owner of a Minneapolis pizza parlor who just gave his employees a raise. “Tonight,” Obama said, “I ask more of America’s business leaders to follow John’s lead and do what you can to raise your employees’ wages.”

Then Obama announced he was signing an executive order requiring future federal contractors to pay workers a minimum wage of $10.10 an hour. He also said he would sign executive orders mandating higher fuel efficiency standards for trucks, more investment in classroom technology and better federal job training programs.

“Wherever and whenever I can take steps without legislation to expand opportunity for more American families, that’s what I am going to do,” the president told Congress.

Republican lawmakers are calling it a power grab, but who cares? The public’s opinion of Congress could hardly be worse. The problem is that executive orders are usually narrow and impermanent. “How many people, Mr. President,” House Speaker John Boehner (R-Ohio) asked, “will this executive action [requiring future federal contractors to pay at least the minimum wage] actually help? I suspect the answer is somewhere close to zero.”

An executive order can always be rescinded by the next president. It’s much harder to repeal legislation — as Republicans are discovering with Obamacare.

Clout is an assertive approach to governing that usually produces modest results. Usually, but not always. The Emancipation Proclamation was an executive order issued by President Abraham Lincoln in 1863, using his wartime authority as commander in chief. But it still did not have the force of law. In order to abolish slavery permanently, Lincoln had to maneuver Congress into passing the 13th Amendment to the Constitution two years later. (It’s all in the movie Lincoln.)

Obama’s speech was an acknowledgment of failure. He has not been able to “change how Washington works.” So he has to circumvent the process.

Obama is not alone. The last four presidents — two Democrats and two Republicans — all tried to change Washington. They all failed.

The problem isn’t Obama. The problem is the problem.

PHOTO (TOP): President Barack Obama sits with Speaker of the House John Boehner during a memorial service for former Speaker Tom Foley in the Capitol in Washington October 29, 2013. REUTERS/Kevin Lamarque

PHOTO (INSERT): Actor Daniel Day-Lewis, playing the title role, shown in a scene from the film ”Lincoln” in this publicity photo from January 10, 2013. Reuters/Walt Disney Pictures/20th Century Fox/Handout