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WASHINGTON — Despite the Bush administration's insistence that its warrantless eavesdropping program was necessary to protect the country from another terrorist attack, FBI agents, CIA analysts and other officials had difficulty evaluating its effectiveness, according to an unclassified government report made public Friday.

The CIA made no effort to document how the program had contributed to counterterrorism successes, and CIA officials saw it as just "one source among many available analytic and intelligence-gathering tools," the report said.