History Hesitated?

Rudy Giuliani’s latest ad:

When corruption ruled, he challenged it. When welfare failed, he changed it. When crime thrived, he fought it. When government broke, he fixed it. And when the world wavered. And history hesitated. He never did. Rudy Giuliani. Leadership. When it matters most.

When history hesitated? What’s that supposed to mean? There’s been a lot of mockery of the frequency of Rudy Giuliani’s invocations of 9/11, but for my money its the vacuity of the invocations that’s really striking.