Could be. On the other hand, since Clemenza was part of Michael's Great Massacre team, and Rocco was Clemenza's man, Clem may have given him the order to form a secret regime.
I respectfully disagree once more. In the library room scene (which takes place in the novel the night after they come back from Las Vegas) Michael tells Clemenza and Tessio to wait, which turns out to be a test that Tessio fails. After they left the room, Tom asks Michael about his observation of a secret Lampone regime.
Clemenza wasn't part of the Great Massacre Team before it became clear that Tessio had turned traitor.
