unaddressed zegart stymied capitalizing pathbreaking adjust preceded attributed painstaking spying bureaucrats longstanding fragmented counterterrorism conducting extensively amy weaknesses prevented recommendations disrupt rational adaptation blame ranking scholarly declassified seventy

1991 aware blind mistakes organizational plot adapt 2001 sobering danger agencies september terrorist vulnerable finds terrorism structure unlikely emerging reform urgent 1990s ended achieve threats tracing opportunities

aspects interests sought politicians largely failures 11 examination officials performance cia failed resistance fbi core individual changes origins federal documents makes democracy cold efforts need analysis important