Give the 2nd page a try...
Nation-building takes decades.
The establishment of a political system and quasi-consensus on the other hand can be largely accomplished in two years. State Dept. could have drawn together the various factions through diplomacy -with many career diplomats and politicians- towards such a quasi-consensus.
The military was fighting symptoms of political failure, not doing policy itself until it was too late. Bremer et al treated the challenge as an administration challenge when it was in fact a challenge of drawing diverging parties towards a quasi-consensus on how to run the country (how to distribute the spoils).
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