this is one of the contrasts from the founding era I find most interesting. Madison's National Gazette essays on public opinion and parties seem to acknowledge the way leaders and institutions both shape and are shaped by public policy reciprocally, though it's been a few years since I read em.

sentence that was coming to mind: "As there are cases where the public opinion must be obeyed by the government; so there are cases, where not being fixed, it may be influenced by the government." National Gazette, Dec 19, 1791, how passing a bill of rights would respond to and then shape opinion.