“When it comes to all of these executive orders, the question is, does the public view what he’s doing as action or motion?” Mr. Emanuel added. “If you don’t have real action, you create a sense of motion, so the public views it as progress.”
In putting together their budget plans, White House officials are operating under the assumption that the rate of the United States’ economic growth this year will be 2.4 percent, according to one person who has been briefed on the matter. That is slightly ahead of current projections, but it is well below the 3 percent to 4 percent growth that Mr. Trump promised during the campaign.
For next year, the operating assumption is only slightly higher, that person added, a sign that the budget process will not be too out of step with economic reality.
The turmoil that has engulfed Mr. Trump’s West Wing is largely of his own devising — part of a calculated effort by Mr. Bannon to move boldly despite his team’s lack of experience, and despite the reluctance of many mainstream Republicans to work for a president whom many of them opposed in the party’s brutal primaries.
“During his first month in office, President Trump has done exactly what he said he was going to do,” said Thomas Barrack Jr., a longtime friend of Mr. Trump’s who ran his inaugural committee. “No president has worked harder or accomplished as much, even with tremendous political resistance forcing him to operate with a small team of outsiders possessing little government experience.”
Lawmakers in both parties have complained that the president’s big words are not yet matched by detailed policy prescriptions or a legislative affairs team capable of executing such undefined promises as repealing and replacing the Affordable Care Act or rewriting the tax code.
The budget outline will give Mr. Trump an opportunity to add some specifics to an agenda that has been defined by bellicose speech and the broadest possible policy strokes.
Still, aides said Mr. Trump did not plan to change his style for Tuesday’s address. The speech, they said, is likely to have more in common with his clipped inaugural address — in which he declared, “The time for empty talk is over” — than the fine-print litanies of policy proposals favored by President Bill Clinton or the high-flung invocations of national purpose preferred by President George W. Bush and Mr. Obama.
Mr. Trump’s team, conscious of his recent reversals and a first-month approval rating that is among the lowest ever recorded, has emphasized his determination to break the partisan gridlock and inaction that has kept congressional approval ratings in the 15 to 30 percent range for years.
At the start of an interview last week with Sean Hannity of Fox News at the Conservative Political Action Conference, Kellyanne Conway, the president’s counselor, called him “President Action, President Impact, Donald J. Trump.”
In a round-robin of Sunday show interviews, Stephen Miller, Mr. Trump’s policy adviser, maintained that the president had accomplished more in his first month than most of his predecessors had in their entire administrations.
In reality, most of Mr. Trump’s executive actions have had no more effect on actual policy than news releases. And his nail-in-the-coffin order on the Trans-Pacific Partnership trade deal came well after the agreement had been put on life support by labor protests and liberal opposition.
One West Wing official, who requested anonymity to speak candidly about strategy, said the administration craved the split-screen television images of Mr. Trump at round-table discussions with business executives every few days on one side, and the vehement protesters of his administration on the other.
But his critics say such photo opportunities are all an act, a not-very-entertaining real-life rendition of “The Apprentice” by an ineffective rookie president.
“This man is not a doer,” said Representative Nancy Pelosi, the House minority leader, who will host a Monday “pre-buttal” of Mr. Trump’s Tuesday speech. “Oh, please. He has nothing to show for what he’s been doing in office for 40 days. It’s all been squandered.”