Intelligence reports for more than a year had been streaming in about Osama bin Laden's terrorism network rebuilding in the Pakistani tribal areas, a problem that had been exacerbated by years of missteps in Washington and the Pakistani capital, Islamabad, sharp policy disagreements, and turf battles between American counterterrorism agencies.

The new plan, outlined in a highly classified Pentagon order, was intended to eliminate some of those battles. And it was meant to pave a smoother path into the tribal areas for American commandos, who for years have bristled at what they see as Washington's risk-averse attitude toward Special Operations missions inside Pakistan. They also argue that catching bin Laden will come only by capturing some of his senior lieutenants alive.

But more than six months later, the Special Operations forces are still waiting for the green light. The plan has been held up in Washington by the very disagreements it was meant to eliminate. A senior Defense Department official said there was "mounting frustration" in the Pentagon at the continued delay.

The story of how al-Qaeda, whose name is Arabic for "the base", has gained a new haven is in part a story of American accommodation to President Pervez Musharraf of Pakistan, whose advisers played down the terrorist threat. It is also a story of how the White House shifted its sights, beginning in 2002, from counterterrorism efforts in Afghanistan and Pakistan to preparations for the war in Iraq.