The 19-page report, prepared by the agency’s inspector general, also says 50 to 60 CIA officers knew of intelligence reports in 2000 that two of the Sept. 11 hijackers, Nawaf al-Hamzi and Khalid al-Mihdhar, may have been in the United States. But none of those officers thought to notify the Federal Bureau of Investigation about the potential domestic threat, the report says, evidence of what it calls a systemic failure.

The inspector general recommended that several top agency officials, including former director George J. Tenet, be held accountable for their failure to put in place a strategy to dismantle Al Qaeda in the years before Sept. 11, 2001. Gen. Michael V. Hayden, the current CIA director, and his predecessor, Porter J. Goss, have declined to seek disciplinary action against Mr. Tenet and others named in the report.