Hm, the interpretation of long time plans is always difficult with the US. Because they barely ever plan more than 5 years ahead; literally all firm long-time planning is like a waste of money and time to them. Foreign politics in the US have an ability to plan ahead and an overall memory like that of a day fly, so to say.
Plus, they act very uncoordinated, very few pointedly interconnected.
And that makes it hard to interpret if what you get to see is the result of a plan, if it is what a plan has involuntarily developed into, if it slipped out of their control (and they're trying desperately to gain it back, but it doesn't really work), or if its the result of a plan of theirs that has completely gone wrong and not played out.