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Within international relations theorizing, political leaders are rarely cast as norm entrepreneurs or change agents. As heads of government, they have their own sources of legitimacy and authority, but also significant constraints. This article, based on new archival research, adds nuance to this model by exploring the leadership roles of Franklin Roosevelt and Harry Truman on influencing global views on refugee protection. The role both presidents played at the international level was moderated by constraints at the domestic level within the congressional and executive branches. While both presidents demonstrated a strong commitment to refugees, only Truman was able to bring about change in U.S. policy by deploying the tools of norm entrepreneurship.Are elite decision makers, such as the president, norm entrepreneurs? Within international relations constructivist theorizing, norm entrepreneurs are seen as critical to the early stages of norm emergence, where norms are defined as shared understandings of appropriate behavior for actors with a given identity that isolates a single strand of behavior (Jepperson, Wendt, and Katzenstein 1996, 52; see also Finnemore and Sikkink 1998, 891). These entrepreneurs hold strong notions about appropriate or desirable behavior Phil Orchard is a senior lecturer in international relations and peace and conflict studies at the University of Queensland and the research of the Asia-Pacific Centre for the Responsibility to Protect. His research focuses on international efforts to provide institutional and legal protection to civilians and forced migrants. He

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