The decision to keep U.S. personnel in Benghazi with substandard security was made at the highest levels of the State Department by officials who have so far escaped blame over the Sept. 11 attack, according to a review of recent congressional testimony and internal State Department memos by Fox News. Nine months before the assault that killed Ambassador Chris Stevens and three others, State Department Under Secretary Patrick Kennedy signed off on an internal memo that green-lighted the Benghazi operation. The December 2011 memo from Jeffrey Feltman -- then-Assistant Secretary of State for Near Eastern Affairs (NEA) -- pledged "to...