QUESTIONS AT HOME
But the question on the minds of some lawmakers is why the declining security situation did not prompt a fundamental rethinking of the security needs by the State Department and the White House. Three congressional investigations and a State Department inquiry are examining the attack, which U.S. officials said included participants from Ansar al-Shariah, al-Qaida in the Islamic Maghreb and the Muhammad Jamal network, a militant group in Egypt.
''Given the large number of attacks that had occurred in Benghazi that were aimed at Western targets, it is inexplicable to me that security wasn't increased," said Sen. Susan Collins of Maine, the senior Republican on the Homeland Security and Governmental Affairs Committee, one of the panels holding inquiries.
Defending their preparations, State Department officials have asserted that there was no specific intelligence that warned of a large-scale attack on the diplomatic compound in Benghazi, which they asserted was unprecedented. The department said it was careful to weigh security with diplomats' need to meet with Libyan officials and citizens.
''The lethality of an armed, masked attack by dozens of individuals is something greater than we've ever seen in Libya over the last period that we've been there," Patrick F. Kennedy, the State Department's undersecretary for management, told reporters at a news conference Oct. 10.
But David Oliveira, a State Department security officer who was stationed in Benghazi from June 2 to July 5, said he told members and staff of the House Committee on Oversight and Government Reform that he recalled thinking that if 100 or more assailants sought to breach the mission's walls, "there was nothing that we could do about it because we just didn't have the manpower, we just didn't have the facilities."
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In developing a strategy to bring about the fall of Gadhafi, Obama walked a fine line between critics of any U.S. involvement in Libya and those like Sen. John McCain, R-Ariz., who advocated a stronger U.S. leadership role. Obama's approach — a NATO air campaign supported by the United States — was a success.
After Gadhafi's fall, Obama proceeded with equal caution. He approved a plan to send to Tripoli a 16-member Site Security Team, a military unit that included explosive-ordnance personnel, medics and other specialists.
''Day-to-day diplomatic security decisions were managed by career State Department professional staff," said Tommy Vietor, a spokesman for the National Security Council.
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A TEMPORARY STAY
From the start, the State Department's Bureau of Diplomatic Security advised the embassy's security officer, Eric A. Nordstrom, that he needed to develop an "exit strategy" so that the Tripoli-based team could be replaced by Libyan guards and U.S. civilian officials.
Charlene Lamb, one of the department's senior diplomatic security officials, told members of the House oversight committee last month that by June, one of her aides and Nordstrom had identified a need for 21 security positions and that 16 of them were to be filled by Libyan bodyguards. Americans were to fill the remaining slots, and two assistant regional security officers were also to be sent.
The security arrangements in Benghazi appeared to receive little scrutiny in Washington. During the Gadhafi government there had not been a mission there, and in December 2011 Kennedy issued a memo to keep the Benghazi mission open for only a year.
Housed in a rented compound, the mission and a nearby annex used by the Central Intelligence Agency enabled the United States to interact with Libyans in the eastern part of the country from a city that had been the cradle of their revolution.
But eastern Libya also had another face. Although the region had been a wellspring for the uprising against Gadhafi's government, it was also known as one of the major sources of militants who traveled to Iraq in 2007 to join the main terrorist group there, al-Qaida in Mesopotamia.
The number of State Department security agents at the compound in Benghazi fluctuated, sometimes dipping to as few as two. Five U.S. security agents were at the compound on Sept. 11 — three stationed there and two traveling with Stevens.
In addition to the Americans, there were several armed Libyans who served as a quick-reaction force. The Americans were also able to call on the February 17 Martyrs Brigade, a militia supportive of the Libyan government. Yet another small group of Libyan guards stood watch at the gates and perimeter of the compound, but this group was unarmed and equipped with only whistles and batons.
When it came to weapons, the U.S. security team was outgunned. The Americans were equipped with M4 rifles and side arms. But Libya was rife with rocket-propelled grenades, machine guns, mortars and AK-47s.
Much of the security depended on maintaining a low profile. When venturing into town, the Americans drove a Toyota Land Cruiser, from which they removed the diplomatic plates and which they intentionally did not wash. At one point, Nordstrom, the regional security officer, proposed establishing guard towers, but the State Department rejected that on the grounds that it would make the compound more conspicuous.
There was no doubt, however, that there were many in Benghazi who knew the compound's location. On June 6, a bomb was planted near the U.S. Mission's outer wall, blowing out a 12-foot-wide hole. No one was injured.
On June 11, the lead vehicle of the British ambassador's convoy was hit by an armor-piercing rocket-propelled grenade, wounding a British medic and driver. The British envoy left Benghazi the next day, and the British post in the city was closed June 17.
About the same time, the Red Cross in the city pulled out after it was attacked a second time.
''When that occurred, it was apparent to me that we were the last flag flying in Benghazi; we were the last thing on their target list to remove," said Lt. Col. Andrew Wood, the head of the military security team in Tripoli.
In the event of a significant attack, the Americans were counting on the February 17th Brigade to rush to their aid, as it had during the June 6 bombing. The embassy had also established a series of "trip wires," classified benchmarks about intelligence on attack preparations or escalating unrest that would prompt the United States to evacuate the Benghazi compound. But the trip wires did not work.
New security cameras with night vision capability were shipped to the Benghazi compound but were still sitting in crates when the September attack occurred.
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MORE TROUBLING SIGNS
The situation in eastern Libya, meanwhile, remained perilous. Small-scale camps grew out of training areas created last year by militias fighting Libyan government security forces. After the government fell, these compounds continued to churn out fighters trained in marksmanship and explosives, U.S. officials said.
Ansar al-Shariah, a local militant group, some of whose members had ties to al-Qaida in the Islamic Maghreb, a local Qaida affiliate, operated a militant training camp whose location was well known to Benghazi residents. On the Friday after the attack, demonstrators overran it.
U.S. intelligence agencies had provided the administration with reports for much of the past year warning that the Libyan government was weakening and had little control over the militias, including Ansar al-Shariah.
By early September, some Libyan officials in Benghazi were echoing the same security warnings as Stevens was relaying to Washington.
U.S. officials continue to investigate the militants who carried out the attack. A Tunisian, who was apprehended by Turkish officials on a flight from Benghazi to Turkey and repatriated to Tunisia, was also involved, U.S. officials said. It is not yet clear if the attackers who participated in the assault were trained in the camps.
Looking back, Nordstrom told a House hearing last month that a major question was the inability of the administration to react to the worsening environment on the ground.
''I was extremely pleased with the planning to get us into Libya," Nordstrom said. But after the initial security teams began rotating out of Libya months later, he said, "there was a complete and total absence of planning."