Over and over since Sept. 11, aviation and security officials have said they were shocked that terrorists had hijacked airliners and crashed them into landmark buildings. ''This is a whole new world for us,'' Jane F. Garvey, the administrator of the Federal Aviation Administration, said in testimony before a House subcommittee on Sept. 20. But the record shows that for her and others, there were numerous warnings. In 1994, two jetliners were hijacked by people who wanted to crash them into buildings, one of them by an Islamic militant group. And the 2000 edition of the F.A.A.'s annual report on Criminal Acts Against Aviation, published this year, said that although Osama bin Laden ''is not known to have attacked civil aviation, he has both the motivation and the wherewithal to do so. The previous year's edition of that report said that an exiled Islamic leader in Britain proclaimed in August 1998 that Mr. bin Laden would ''bring down an airliner, or hijack an airliner to humiliate the United States.'' The authorities appeared to draw no lessons from the two attacks in 1994.
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