Ford's first major act upon taking office was to grant a presidential pardon to Nixon for his role in the Watergate scandal, prompting a major backlash to Ford's presidency. He also created a conditional clemency program for Vietnam War draft dodgers. In the wake of Nixon's heavy use of executive privilege to block investigations of his actions, Ford was scrupulous in minimizing its usage. However, that complicated his efforts to keep congressional investigations under control. Political scientist Mark J. Rozell concludes that Ford's: Along with the experience of the Vietnam War and other issues, Watergate contributed to a decline in the faith that Americans placed in political institutions. Low public confidence added to Ford's already formidable challenge of establishing his own administration without a presidential transition period or the popular mandate of a presidential election. Though Ford became widely popular during his first month in office, he faced a difficult situation regarding the fate of former President Nixon, whose status threatened to undermine the Ford administration.