Komer attributed the ultimate failure of hearts and minds programs in South Vietnam to the bureaucratic culture of the United States in addition to the administrative and military shortcomings of the South Vietnamese government. A counter-insurgency strategy for Vietnam was proposed from the earliest days of U.S. involvement in Vietnam, notably by Presidents Kennedy and Johnson, but there was an "immense gap between policy and performance." Early efforts to implement hearts and minds programs in Vietnam were small scale compared to the resources and manpower devoted to fighting a conventional war. Even after the creation of CORDS in 1967, "pacification remained a small tail to the very large conventional military dog. It was never tried on a large enough scale until too late."