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Phase IV: The American Dilemma (1942) The fall of Moscow should have triggered US entry. However, Japan, adhering to the Tripartite Pact’s defensive clauses, did not attack Pearl Harbor. Tokyo feared provoking the American colossus without German support in Europe. President Roosevelt was isolated. Without a direct attack on US soil, Congress refused a declaration of war. America became the "Arsenal of Exile," supplying anti-fascist partisans in the Urals, but it could not project power. In E