UNITED NATIONS — For the second time this month, Russia moved to expand its political and military influence in the Syria conflict and left the United States scrambling, this time by reaching an understanding, announced on Sunday, with Iraq, Syria and Iran to share intelligence about the Islamic State.
Yes. Trying to formulate its own policy. Deciding what best to do next.
"Scrambling" suggests it has been left behind by recent events/ developments, and is trying to catch up.