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"There was an utter lack of curiosity to follow up on what was well-known to the U.N.," said David Albright, a former U.N. weapons inspector.
"There was a systematic failure of the military, which overran the country and left all these explosives behind without protecting its rear," he said. "The military should have had the sense to either secure high explosives and armaments or blow them up as they went through."
The Al-Qaqaa explosives included HMX and RDX, key components in plastic explosives, which insurgents in Iraq have used in repeated bomb attacks on the U.S.-led multinational force.
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"Our greatest concern from both a proliferation standpoint and from a standpoint of danger to human beings was Al-Qaqaa," the IAEA's Fleming said.
Weapons experts are questioning why Al-Qaqaa - once a key facility in Saddam Hussein's effort to build a nuclear bomb - wasn't under 24-hour guard.
The facility was considered "the pre-eminent site for high explosive stockpiles," a U.S. official said, speaking on condition of anonymity.