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Yeah, that's why it implies to me he was just trying to say what would be coming in the Baker report before it became official. So far, all the leaked stuff from that seems to be similarly high level empty platitudes.
Both that and this memo ultimately have the detail of "Our plan to make things better is to cause better things to be."
Of course, quite a few things in that list are things that seem amazingly obvious if they aren't already being (embedding Iraqis in American units, etc.).
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