Given that he had the job under Clinton, what was he supposed to do when Clinton wouldn't give the green light, time and time again, to take UBL out? Clinton clearly had no interest in pursuing AQ beyond tossing an occasional $500,000 cruise missile at a empty $5 tent. That decade was a crucial incubation time for al-Qa'ida, and Clinton took practically no postive stepts to nip it in the bud.
Blaming the intelligence agencies or the military or anyone else who was ready to go get him, but lacked permission from the CinC, isn't exactly fair.