Sounds about right. If I recall correctly from the books I've read, the higher-ups couldn't decide between a carrot or stick approach, and the inconsistency resulted in a lack of coherency on the ground. The negotiators were largely aware of the perception issues, but the leadership was indecisive and wouldn't follow through.
Granted, those books were written many years after the fact. I just bought the series on Amazon and am really curious to watch it.