Good old "foggy bottom" otherwise known as the State Department, pretty much has spent the last 60+ years only paying lip service to whatever the president and administration requested.
The State Department and those that have made it their career to be involved in it, are true "deep state" types, they carry on their own version of foreign policy regardless of what they are told.
They also enjoy dealing with their "deep state" counterparts from other countries and working out things as they find beneficial for themselves.