Review May Shift Terror Policies

As part of the reorganization, a new office of strategic and operational planning is slated to become the focal point for operations aimed at terrorists, but that, too, has yet to start working fully, the senior counterterrorism official said.

Townsend just hired a deputy last week, Treasury official Juan Carlos Zarate, to take on the terrorism portfolio at the NSC; Townsend had been doing that as well as serving as the president's top homeland security aide for the past year. Several counterterrorism sources said the State job will soon be filled by CIA veteran Hank Crumpton and the counterterrorism center post is slated to go to Air Force Gen. Charles F. Wald, current deputy commander of U.S. forces in Europe.

"They recognize there's been a vacuum of leadership," said a former top counterterrorism official, who spoke on the condition of anonymity because of the sensitivity of the subject. "There has been a dearth of senior leadership directing this day to day. No one knows who's running this on a day-to-day basis."

In general, current and former officials familiar with the discussions said, the challenge is to reorient U.S. efforts when the immediate threat from al Qaeda seems to have receded, though it is still far from disappearing. Osama bin Laden and other top lieutenants remain at large, but many U.S. experts appear to now agree with the assessment of Pakistan President Pervez Musharraf, who told a reporter recently that "we have broken the back of al Qaeda."

"No doubt al Qaeda as an organization has been destroyed," Afghan President Hamid Karzai told Washington Post reporters and editors last week. "No doubt it is no longer capable to launch the kind of attacks that they did on all of us a few years ago. Their capability is limited only to sporadic individual acts, suiciders and things like that."

Until recently, the Bush administration resisted any broadening of its mission against al Qaeda, insisting on what Townsend once called a "decapitation" strategy. The policy review marks what many experts regard as a belated shift. "The administration has appropriately taken the broad view," said an intelligence official who had urged the review. "It's not going to be a matter of just trying to roll up more al Qaeda guys. What we still know as the al Qaeda organization -- they've taken a terrible beating."

But even that notion remains controversial when assessing the continuing threat from al Qaeda will shape the policy against it. "I just don't accept the idea that the whole organization is completely gone and morphed into an amorphous global jihad movement," said Kenneth Katzman, a terrorism analyst at the Congressional Research Service. "They could still try to reconstitute the centralized structure of before 9/11."

A new campaign targeting "violent extremism" could also prove controversial, given disputes in the Middle East about how to categorize groups such as Hezbollah in Lebanon and Hamas in the West Bank that act as political parties while also supporting what the United States calls terrorist activities. "You can't start drawing very precise lines -- security/counterterrorism versus the broader efforts to deal with the roots of terrorism," the intelligence official said.

Staff writers Peter Baker and Dana Priest contributed to this report.