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that important Questions like, "Retaliation for what?" and "Under what circumstances?" had yet to be answered clearly. The scenario described in the report's appended "Illustrative Program" of retaliatory pressure seemed to mix elements appropriate for a continuous program of military actions against North Vietnam with those suitable as tit-for-tat response to specific provocations.

Each of the Secretary's recommendations was approved by President Johnson at a National Security Council meeting on 17 March, with the directive for all agencies "to proceed energetically" in executing them. Subsequent penning activities by different implementing agencies indicate that they did not share a common view of the policy implications and assumptions contained In these recommendations. Rh