THE PARADOXES OF INTELLIGENCE REFORM In the fall of 1973, the Syrian army began to gather a large number of tanks, artillery batteries, and infantry along its border with Israel. Simultaneously, to the south, the Egyptian army canceled all leaves, called up thousands of reservists, and launched a massive military exercise, building roads and preparing anti-aircraft and artillery positions along the Suez Canal. On October 4, an Israeli aerial reconnaissance mission showed that the Egyptians had moved artillery into offensive positions. That evening, Aman, the Israeli military intelligence agency, learned that portions of the Soviet fleet near Port Said and Alexandria had set sail, and that the Soviet government had begun airlifting the families of Soviet advisers out of Cairo and Damascus. Then, at four o’clock in the morning on October 6, Israel’s director of military intelligence received an urgent telephone call from one of the country’s most trusted intelligence sources. Egypt and Syria, the source said, would attack later that day. Top Israeli officials immediately called a meeting. Was war imminent? The head of Aman, Major General Eli Zeira, looked over the evidence and said he didn’t think so. He was wrong. That afternoon, Syria attacked from the east, overwhelming the thin Israeli defenses in the Golan Heights, and Egypt attacked from the south, bombing Israeli positions and sending eight thousand infantry streaming across the Suez. Despite all the warnings of the previous weeks, Israeli officials were caught by surprise. Why couldn’t they connect the dots?
If you start on the afternoon of October 6 and work backward, the trail of clues pointing to an attack seems obvious; you’d have to conclude that something was badly wrong with the Israeli intelligence service. On the other hand, if you start several years before the Yom Kippur War and work forward, re-creating what people in Israeli intelligence knew in the same order that they knew it, a very different picture emerges. In the fall of 1973, Egypt and Syria certainly looked as if they were preparing to go to war. But, in the Middle East of the time, countries always looked as if they were going to war. In the fall of 1971, for instance, both Egypt’s president and its minister of war stated publicly that the hour of battle was approaching. The Egyptian army was mobilized. Tanks and bridging equipment were sent to the canal. Offensive positions were readied. And nothing happened. In December of 1972, the Egyptians mobilized again. The army furiously built fortifications along the canal. A reliable source told Israeli intelligence that an attack was imminent. Nothing happened. In the spring of 1973, the president of Egypt told Newsweek that everything in his country “is now being mobilized in earnest for the resumption of battle.” Egyptian forces were moved closer to the canal. Extensive fortifications were built along the Suez. Blood donors were rounded up. Civil-defense personnel were mobilized. Blackouts were imposed throughout Egypt. A trusted source told Israeli intelligence that an attack was imminent. It didn’t come. Between January and October of 1973, the Egyptian army mobilized nineteen times without going to war. The Israeli government couldn’t mobilize its army every time its neighbors threatened war. Israel is a small country with a citizen army. Mobilization was disruptive and expensive, and the Israeli government was acutely aware that if its army was mobilized and Egypt and Syria weren’t serious about war, the very act of mobilization might cause them to become serious about war.
Nor did the other signs seem remarkable. The fact that the Soviet families had been sent home could have signified nothing more than a falling-out between the Arab states and Moscow. Yes, a trusted source called at four in the morning, with definite word of a late-afternoon attack, but his last two attack warnings had been wrong. What’s more, the source said that the attack would come at sunset, and an attack so late in the day wouldn’t leave enough time for opening air strikes. Israeli intelligence didn’t see the pattern of Arab intentions, in other words, because, until Egypt and Syria actually attacked, on the afternoon of October 6, 1973, their intentions didn’t form a pattern. They formed a Rorschach blot. What is clear in hindsight is rarely clear before the fact. It’s an obvious point, but one that nonetheless bears repeating, particularly when we’re in the midst of assigning blame for the surprise attack of September 11.
Of the many postmortems conducted after September 11, the one that has received the most attention is The Cell: Inside the 9/11 Plot, and Why the F.B.I. and C.I.A. Failed to Stop It by John Miller, Michael Stone, and Chris Mitchell. The authors begin their tale with El Sayyid Nosair, the Egyptian who was arrested in November of 1990 for shooting Rabbi Meir Kahane, the founder of the Jewish Defense League, in the ballroom of the Marriott Hotel in midtown Manhattan. Nosair’s apartment in New Jersey was searched, and investigators found sixteen boxes of files, including training manuals from the Army Special Warfare School; copies of teletypes that had been routed to the Joint Chiefs of Staff; bomb-making manuals; and maps, annotated in Arabic, of landmarks like the Statue of Liberty, Rockefeller Center, and the World Trade Center. According to The Cell, Nosair was connected to gunrunners and to Islamic radicals in Brooklyn, who were in turn behind the World Trade Center bombing two and a half years later, which was masterminded by Ramzi Yousef, who then showed up in Manila in 1994, apparently plotting to kill the pope, crash a plane into the Pentagon or the CIA, and bomb as many as twelve transcontinental airliners simultaneously. And who was Yousef associating with in the Philippines? Mohammed Khalifa, Wali Khan Amin-Shah, and Ibrahim Munir, all of whom had fought alongside, pledged a loyalty oath to, or worked for a shadowy Saudi Arabian millionaire named Osama bin Laden.
Miller was a network-television correspondent throughout much of the past decade, and the best parts of The Cell recount his own experiences in covering the terrorist story. He is an extraordinary reporter. At the time of the first World Trade Center attack, in February of 1993, he clapped a flashing light on the dashboard of his car and followed the wave of emergency vehicles downtown. (At the bombing site, he was continuously trailed by a knot of reporters – I was one of them – who had concluded that the best way to learn what was going on was to try to overhear his conversations.) Miller became friends with the FBI agents who headed the New York counterterrorist office – Neil Herman and John O’Neill, in particular – and he became as obsessed with Al Qaeda as they were. He was in Yemen, with the FBI, after Al Qaeda bombed the U.S.S. Cole. In 1998, at the Marriott in Islamabad, he and his cameraman met someone known to them only as Akhtar, who spirited them across the border into the hills of Afghanistan to interview Osama bin Laden. In The Cell, the period from 1990 through September 11 becomes a seamless, devastating narrative: the evolution of Al Qaeda. “How did this happen to us?” the book asks in its opening pages. The answer, the authors argue, can be found by following the “thread” connecting Kahane’s murder to September 11. In the events of the past decade, they declare, there is a clear “recurring pattern.”
The same argument is made by Senator Richard Shelby, vice chairman of the Senate Select Committee on Intelligence, in his investigative report on September 11, released this past December. The report is a lucid and powerful document, in which Shelby painstakingly points out all the missed or misinterpreted signals pointing to a major terrorist attack. The CIA knew that two suspected Al Qaeda operatives, Khalid al-Mihdhar and Nawaf al-Hazmi, had entered the country, but the CIA didn’t tell the FBI or the NSC. An FBI agent in Phoenix sent a memo to headquarters that began with the sentence “The purpose of this communication is to advise the Bureau and New York of the possibility of a coordinated effort by Osama Bin Laden to send students to the United States to attend civilian aviation universities and colleges.” But the FBI never acted on the information, and failed to connect it with reports that terrorists were interested in using airplanes as weapons. The FBI took into custody the suspected terrorist Zacarias Moussaoui, on account of his suspicious behavior at flight school, but was unable to integrate his case into a larger picture of terrorist behavior. “The most fundamental problem… is our Intelligence Community’s inability to ‘connect the dots’ available to it before September 11, 2001, about terrorists’ interest in attacking symbolic American targets,” the Shelby report states. The phrase “connect the dots” appears so often in the report that it becomes a kind of mantra. There was a pattern, as plain as day in retrospect, yet the vaunted American intelligence community simply
