On February 17, 1998, President Clinton, speaking at the Pentagon, warned of the "reckless acts of outlaw nations and an unholy axis of terrorists, drug traffickers and organized international criminals." These "predators of the twenty-first century," he said, these enemies of America, "will be all the more lethal if we allow them to build arsenals of nuclear, chemical and biological weapons and missiles to deliver them. We simply cannot allow that to happen. There is no more clear example of this threat than Saddam Hussein's Iraq."

Later that spring, the Clinton Justice Department prepared an indictment of Osama bin Laden. The relevant passage, prominently placed in the fourth paragraph, reads:

Al Qaeda reached an understanding with the government of Iraq that al Qaeda would not work against that government and that on particular projects, specifically including weapons development, al Qaeda would work cooperatively with the government of Iraq.