Foreign governments

The 28 pages

The secret chapter of Congress’s 9/11 inquiry, and what it did and did not show about Saudi Arabia

RECORD / AT A GLANCE

Partly true

The 28 pages are real and they describe contacts between some hijackers and people who may have been tied to the Saudi government. But the inquiry said itself that it had not checked those leads. They were a list of questions, not proof. Later FBI files, covered in the Bayoumi file, made some of the leads much stronger.

THE EVENTS / THE INVESTIGATION / THE STORY

The chronology.

READ THE FILE

Evidence & assessment.

Open an article for its evidence, labeled AI assessment and numbered sources. Read the complete static edition ↗

WHAT PEOPLE SAY ABOUT THIS FILE

The claims, rated.

5 claims people make about this file, each rated documented, partly true, disputed, unproven or false. Think a rating is wrong? Use Dispute or Support, or join the Discussion.

DOCUMENTED Saudi Arabia, Iran, Pakistan & Israel

“The Commission found the Saudi government did not fund al Qaeda.”

It found “no evidence that the Saudi government as an institution or senior Saudi officials individually funded the organization,” while noting Saudi-sponsored charities might have diverted money.

Who says it: 9/11 Commission.

The evidence in this file ↗ · On the full claims board ↗

DOCUMENTED Saudi Arabia, Iran, Pakistan & Israel

“The 28 pages say the Saudi ambassador’s family supported a man linked to the hijackers.”

They say Osama Bassnan and his wife received financial support from the ambassador and his wife. The pages did not test what it meant.

Who says it: The 28 pages.

The evidence in this file ↗ · On the full claims board ↗

PARTLY TRUE Saudi Arabia, Iran, Pakistan & Israel

“The 28 pages proved Saudi Arabia was behind 9/11.”

They describe contacts between hijackers and people possibly tied to the Saudi government, but the inquiry said it had not checked those leads.

Who says it: Families, critics.

The evidence in this file ↗ · On the full claims board ↗

PARTLY TRUE Saudi Arabia, Iran, Pakistan & Israel

“Abu Zubaydah’s phone book linked al Qaeda to the Saudi ambassador.”

It held a number linked to a company managing Prince Bandar’s Colorado home. The FBI said CIA traces showed no direct links to U.S. numbers.

Who says it: People reading the 28 pages.

The evidence in this file ↗ · On the full claims board ↗

All 162 rated claims ↗

OPEN THE RECORD

Sources & limits.

Numbered citations in each article identify the relevant sources. These records have different purposes and evidentiary weight.

  1. Joint Inquiry, Part Four (“the 28 pages”), as declassified in 2016 ↗

    The scanned pages themselves, on possible Saudi government support for the hijackers. Image-only PDF; it opens but has no text layer.

  2. House Intelligence Committee, 15 July 2016: declassified “28 pages” ↗

    The release of Part Four with an FBI–CIA executive summary arguing that later investigation did not support most of its leads.

  3. 9/11 Commission Report, chapter 5: Al Qaeda Aims at the American Homeland ↗

    KSM’s planes operation, the selection of the hijackers, financing, and the finding of no evidence that the Saudi government as an institution or senior officials individually funded al Qaeda.

  4. Federal Register: Executive Order 14040, 3 September 2021 ↗

    President Biden’s order for a six-month declassification review of FBI 9/11 records.

  5. FBI electronic communication, 14 June 2017, “Albayoumi / GIP Cooptee,” filed as ECF 8871-4 in In re Terrorist Attacks (S.D.N.Y.) ↗

    States that Bayoumi was paid a monthly stipend as a cooptee of Saudi intelligence and that this “confirms” allegations the 9/11 Commission had not confirmed.

  6. U.S. District Court (S.D.N.Y.), 28 August 2025: memorandum decision and order denying Saudi Arabia’s motion to dismiss (ECF 11182) ↗

    Judge George Daniels lets the families’ claims against Saudi Arabia proceed under JASTA. Image-only PDF.

  7. Senate and House intelligence committees: Joint Inquiry report, December 2002 ↗

    The first official inquiry; its findings on warnings, the CIA and FBI, and Part Four, kept secret until 2016.

← The 9/11 hub: the story, the full timeline and every file

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