On Sept. 17, 2001, six days after the attacks on the World Trade Center and the Pentagon, President Bush signed a 21/2-page document marked "TOP SECRET" that outlined the plan for going to war in Afghanistan as part of a global campaign against terrorism.

Almost as a footnote, the document also directed the Pentagon to begin planning military options for an invasion of Iraq, senior administration officials said.

The previously undisclosed Iraq directive is characteristic of an internal decision-making process that has been obscured from public view. Over the next nine months, the administration would make Iraq the central focus of its war on terrorism without producing a rich paper trail or record of key meetings and events leading to a formal decision to act against President Saddam Hussein, according to a review of administration decision-making based on interviews with more than 20 participants.

Instead, participants said, the decision to confront Hussein at this time emerged in an ad hoc fashion. Often, the process circumvented traditional policymaking channels as longtime advocates of ousting Hussein pushed Iraq to the top of the agenda by connecting their cause to the war on terrorism.

With the nation possibly on the brink of war, the result of this murky process continues to reverberate today: tepid support for military action at the State Department, muted concern in the military ranks of the Pentagon and general confusion among relatively senior officials -- and the public -- about how or even when the policy was decided.

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The administration has embarked on something "quite extraordinary in American history, a preventive war, and the threshold for justification should be extraordinarily high," said G. John Ikenberry, an international relations professor at Georgetown University. But "the external presentation and the justification for it really seems to be lacking," he said. "The external presentation appears to mirror the internal decision-making quite a bit."
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Five years ago, the Dec. 1 issue of the Weekly Standard, a conservative magazine, headlined its cover with a bold directive: "Saddam Must Go: A How-to Guide." Two of the articles were written by current administration officials, including the lead one, by Zalmay M. Khalilzad, now special White House envoy to the Iraqi opposition, and Paul D. Wolfowitz, now deputy defense secretary.

"We will have to confront him sooner or later -- and sooner would be better," Khalilzad and Wolfowitz wrote. They called for "sustained attacks on the elite military units and security forces that are the main pillar of Saddam's terror-based regime."

In an open letter to President Bill Clinton in early 1998, Wolfowitz, Khalilzad and eight other people who now hold positions in the Bush administration -- including Defense Secretary Donald H. Rumsfeld -- urged Clinton to begin "implementing a strategy for removing Saddam's regime from power."
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...in April, Bush approached Rice. It was time to figure out "what we are doing about Iraq," he told her, setting in motion a series of meetings by the principals and their deputies. "I made up my mind that Saddam needs to go," Bush hinted to a British reporter at the time. "That's about all I'm willing to share with you."
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In July, the State Department's director of policy planning, Richard N. Haass, held a regular meeting with Rice and asked whether they should talk about the pros and cons of confronting Iraq.

Don't bother, Rice replied: The president has made a decision.

» U.S. Decision On Iraq Has Puzzling Past