"Tillerson ... was baffled over not being consulted on the substance of the order"

The blowback underscored Trump’s tenuous relationship with his own national security advisers, many of whom he met for the first time during the transition, as well as with the government bureaucracy he now leads. While Trump outlined his plan for temporarily halting entry to the U.S. from countries with terror ties during the campaign, the confusing way in which it finally was crafted stunned some who have joined his team.

Mattis, who stood next to Trump during Friday’s signing ceremony, is said to be particularly incensed. A senior U.S. official said Mattis, along with Joint Chiefs Chairman Joseph Dunford, was aware of the general concept of Trump’s order but not the details. Tillerson has told the president’s political advisers that he was baffled over not being consulted on the substance of the order.

U.S. officials and others with knowledge of the Cabinet’s thinking insisted on anonymity in order to disclose the officials’ private views.