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Or just plain incompetence?
This admin. (and the bungling zealots they've put in charge of every gov't function) have proven they are unable to do anything right.
Add this to the epidemic of early Alzheimer's affecting every Bush appointee (none seem to be able to remember anything anymore), and doesn't it seem plausible they really are losing about half the paperwork they generate?
After all, how many billions of dollars intended for Iraq have they lost track of?