Trump once said that power was to create fear. In this case, he should be worried.

The government's closure is only the most recent and most prominent example of Mr. Trump's affirmative behavior, which is gaining little, at least until now. Diplomats said the American allies felt more resigned than fearing to deal with him. Mr. Trump's list of threats is long, but the number of times it has been run is extremely short.

"He plays a role and this role, much like in" The Apprentice, "was strong, a capable character, but that's a role," said David Axelrod, senior adviser to President Barack Obama. "Every foreign leader and every practicing politician has taken a step from him and understands the basic principles, he reacts with force and there is not much behind the facade."

In recent months, Trump had tense conversations with, among others, British Prime Minister Theresa May and French President Emmanuel Macron, who felt guided by Mr Trump on the state of the French economy, said regulars of conversations.

German Chancellor Angela Merkel told people that she did not consider Mr. Trump as a serious person to talk to. Its tough, tariff-driven approach to pulling China back has had mixed results at best, hurting some US industries and tipping the markets. Even on one of the most important issues for which he has set boundaries and promised serious consequences – the renegotiation of the North American Free Trade Agreement with Canada and Mexico – Mr. Trump did not let himself be seduced by anything.

Most trade experts said that the revised trade agreement included modest substantive changes that would benefit the United States, while others felt the biggest difference could be symbolic: a change in name for the United States-Mexico-Canada agreement. Congress has not yet voted on this pact

But there is a place where Mr. Trump's fear tactics have been an unprecedented success: among Republicans. Mr. Trump has a tough hand on the Republican base, preventing other party members, who also rely on these central voters, from opposing him.

"person who draws a course with opposition unless you want to be a former legislator," said Josh Holmes, a Republican strategist close to Mr. McConnell.