I think that's what Mansoor would say. Before the Surge Bush delegated Iraq policy to the Pentagon and almost everyone there wanted out of Iraq. There was no real policy to win or beat the insurgency outside of some individual commanders out in the field. When things finally deteriorated into full scale civil war Bush suddenly realized that he had to do something and took more direct control and that's what led to the Surge, his constant video conferencing with Maliki, etc.