“The decentralized command structure of Mr. bin Laden’s organization makes it far more difficult to investigate. Al-Qaeda, [CIA Director] Mr. [George] Tenet noted [in testimony to the Senate Select Committee on Intelligence on February 8, 2001], ‘is continuing to place emphasis on developing surrogates to carry out attacks in an effort to avoid detection, blame and retaliation. As a result, it is often difficult to attribute terrorist incidents to his group.’ ”
– James Risen, “C.I.A. Chief Sees Russia Trying to Revive Its Challenge to U.S.,” The New York Times, Feb. 8, 2001