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This was never answered on the show, but in Doctor Who Annual 2006, Russell T. Davies wrote about the legend of the Last Great Time War, and mentioned that Romana was President.

It's always possible that someone else was President at the start, and Romana was brought back because she'd led Gallifrey in their last great war, only to herself be replaced by Rassilon, who'd led them in the first big one.

But the simplest explanation is that she was President when it started.

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