The Times editorial page get’s it:
But it’s now clear that Mr. Powell long ago chose loyalty over leadership and was not a major figure in the biggest foreign policy decisions of the Bush administration. Most accounts of the rush to war in Iraq show that Mr. Powell was deeply troubled about the planning for the war, its timing and the intense opposition of most of Washington’s European allies. But he was unwilling or unable to exert much influence over the president in that critical time, and it’s not clear whether Mr. Bush even consulted him before making his decision to go to war.
There were moments in his tenure when Mr. Powell could have resigned over principle. But he soldiered on, leaving when it was safe and convenient for his boss. Yesterday, he told the world that he’d long ago given up any ambition of sticking around for a second term. In the end, his legacy may simply be that the administration that bungled the handling of a war because the president failed to heed the Powell Doctrine was the one in which Mr. Powell himself served.