When do you develop plans?

"The strategy — already largely outlined by Defense Secretary Donald H. Rumsfeld and other top officials in recent weeks — was developed over the summer as Democratic presidential challenger John Kerry was accusing President Bush of lacking a coherent plan to end the rising violence and pave the way for the withdrawal of American troops."

Shouldn't Bush have developed the plan in Jan 2003.

http://story.news.yahoo.com/news?tmpl=story&cid=544&ncid=716&e=5&u=/ap/20041008/ap_on_go_pr_wh/us_iraq