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Berger had left the room by the time Clarke, using a Powerpoint presentation, outlined his thinking to Rice. A senior Bush Administration official denies being handed a formal plan to take the offensive against al-Qaeda, and says Clarke's materials merely dealt with whether the new Administration should take "a more active approach" to the terrorist group. (Rice declined to comment, but through a spokeswoman said she recalled no briefing at which Berger was present.) Other senior officials from both the Clinton and Bush administrations, however, say that Clarke had a set of proposals to "roll back" al-Qaeda. In fact, the heading on Slide 14 of the Powerpoint presentation reads, "Response to al Qaeda: Roll back." Clarke's proposals called for the "breakup" of al-Qaeda cells and the arrest of their personnel. The financial support for its terrorist activities would be systematically attacked, its assets frozen, its funding from fake charities stopped. Nations where al-Qaeda was causing trouble--Uzbekistan, the Philippines, Yemen--would be given aid to fight the terrorists. Most important, Clarke wanted to see a dramatic increase in covert action in Afghanistan to "eliminate the sanctuary" where al-Qaeda had its terrorist training camps and bin Laden was being protected by the radical Islamic Taliban regime. The Taliban had come to power in 1996, bringing a sort of order to a nation that had been riven by bloody feuds between ethnic warlords since the Soviets had pulled out. Clarke supported a substantial increase in American support for the Northern Alliance, the last remaining resistance to the Taliban. That way, terrorists graduating from the training camps would have been forced to stay in Afghanistan, fighting (and dying) for the Taliban on the front lines. At the same time, the U.S. military would start planning for air strikes on the camps and for the introduction of special-operations forces into Afghanistan. The plan was estimated to cost "several hundreds of millions of dollars." In the words of a senior Bush Administration official, the proposals amounted to "everything we've done since 9/11."
And that's the point. The proposals Clarke developed in the winter of 2000-01 were not given another hearing by top decision makers until late April, and then spent another four months making their laborious way through the bureaucracy before they were readied for approval by President Bush. It is quite true that nobody predicted Sept. 11--that nobody guessed in advance how and when the attacks would come. But other things are true too. By last summer, many of those in the know--the spooks, the buttoned-down bureaucrats, the law-enforcement professionals in a dozen countries--were almost frantic with worry that a major terrorist attack against American interests was imminent. It wasn't averted because 2001 saw a systematic collapse in the ability of Washington's national-security apparatus to handle the terrorist threat.