The Clinton Administration, made a concious effort in 1993, with the WTC bombing, to shift US Government Policy regarding ALL TERRORISM as State Sposored, to the work of Individuals. This way they could treat it as a Law enforcement probblem, and not ever be burdened by the Politically Risky pursuit of State Actors.
BTW, that was the most IMPORTANT PART of Bush's Axis of Evil speech. In one quick turn he put the emphasis back where it belonged, and without any of the Talking heads noticing. (mostly because they refused to call the Previous Administration on it).....