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On July 5 of last year, a month and a day before President Bush first heard that al Qaeda might plan a hijacking, the White House summoned officials of a dozen federal agencies to the Situation Room.
"Something really spectacular is going to happen here, and it's going to happen soon," the government's top counterterrorism official, Richard Clarke, told the assembled group, according to two of those present. The group included the Federal Aviation Administration, along with the Coast Guard, FBI, Secret Service and Immigration and Naturalization Service.
Clarke directed every counterterrorist office to cancel vacations, defer nonvital travel, put off scheduled exercises and place domestic rapid-response teams on much shorter alert. For six weeks last summer, at home and overseas, the U.S. government was at its highest possible state of readiness -- and anxiety -- against imminent terrorist attack.
That intensity -- defensive in nature -- did not last. By the time Bush received his briefing at his ranch in Crawford, Tex., on Aug. 6, the government had begun to stand down from the alert. Offensive planning against al Qaeda remained in a mid-level interagency panel, which had spent half a year already in a policy review. The Deputies Committee, the second tier of national security officials, had not finished considering the emerging plan, and Bush's Cabinet-rank advisers were still a month away from their first meeting on terrorism. That took place Sept. 4, a week before hijacked planes were flown into the Pentagon and World Trade Center in synchronized attacks.
What Bush and his government did with the information they had in August became the subject of a political brawl on Capitol Hill yesterday, largely shorn of the context of those weeks before Sept. 11. A close look at the sequence of events, based on lengthy interviews early this year with participants and fresh accounts yesterday, appears to support the White House view that Bush lacked sufficient warning to stop the attack. But it also portrays a new administration that gave scant attention to an adversary whose lethal ambitions and savvy had been well understood for years.
Director of Central Intelligence George J. Tenet had been "nearly frantic" with concern since June 22, according to one frequent interlocutor, and a written intelligence summary for national security adviser Condoleezza Rice said on June 28: "It is highly likely that a significant al Qaeda attack is in the near future, within several weeks." By late summer, one senior political appointee said, Tenet had "repeated this so often that people got tired of hearing it."
The president's daily briefing, a CIA distillation of noteworthy current intelligence, seldom includes a threat "so important and so precise that everyone stops in their tracks" to head it off, one senior foreign policy official said yesterday. The reference to hijacking on Aug. 6, said another source with first-hand knowledge, was speculative and backed by no specific threat report more recent than 1998.
But it is also true that Bush and his Cabinet advisers were not yet disposed to respond to al Qaeda as a first-tier national security threat. The alerts of the early and mid-summer -- described by two career counterterrorist officials as the most urgent in decades -- had faded to secondary concern by the time of Bush's extended Crawford vacation. As late as Sept. 9, Defense Secretary Donald H. Rumsfeld threatened a presidential veto when the Senate proposed to divert $600 million to counterterrorism from ballistic missile defense.