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In the absence of men sleeping with the beetles, the CIA had to depend on less reliable allies. The agency attempted to recruit tribal leaders in Afghanistan who might be persuaded to take on bin Laden; contingency plans had been made for the CIA to fly one of its planes to a desert landing strip in Afghanistan if he was ever captured. (Clinton had signed presidential "findings" that were ambiguous on the question of whether bin Laden could be killed in such an attack.) But the tribal groups' loyalty was always in doubt. Despite the occasional abortive raid, they never seemed to get close to bin Laden. That meant that the Clinton team had to fall back on a second strategy: taking out bin Laden by cruise missile, which had been tried after the embassy bombings in 1998. For all of 2000, sources tell TIME, Clinton ordered two U.S. Navy submarines to stay on station in the northern Arabian Sea, ready to attack if bin Laden's coordinates could be determined.
But the plan was twice flawed. First, the missiles could be used only if bin Laden's whereabouts were known, and the CIA never definitively delivered that information. By early 2000, Clinton was becoming infuriated by the lack of intelligence on bin Laden's movements. "We've got to do better than this," he scribbled on one memo. "This is unsatisfactory." Second, even if a target could ever be found, the missiles might take too long to hit it. The Pentagon thought it could dump a Tomahawk missile on bin Laden's camp within six hours of a decision to attack, but the experts in the White House thought that was impossibly long. Any missiles fired at Afghanistan would have to fly over Pakistan, and Pakistan's Inter-Services Intelligence agency (ISI) was close to the Taliban. White House aides were sure bin Laden would be tipped off as soon as the Pakistanis detected the missiles.
Berger and Clarke wanted something more robust. On Nov. 7, Berger met with William Cohen, then Secretary of Defense, in the Pentagon. The time had come, said Berger, for the Pentagon to rethink its approach to operations against bin Laden. "We've been hit many times, and we'll be hit again," Berger said. "Yet we have no option beyond cruise missiles." He wanted "boots on the ground"--U.S. special-ops forces deployed inside Afghanistan on a search-and-destroy mission targeting bin Laden. Cohen said he would look at the idea, but he and General Hugh Shelton, Chairman of the Joint Chiefs of Staff, were dead set against it. They feared a repeat of Desert One, the 1980 fiasco in which special-ops commandos crashed in Iran during an abortive mission to rescue American hostages.