Given the proliferation of ambiguous phrasing in the administration's statements to the press, I suspect Bush is searching for a face-saving out from the proposed war on Iraq.
At the same time, after a billion dollars a month, the al-Qaeda leadership (supposedly the real culprits behind 9/11--though the groundwork's already being laid to send that down the memory hole) remains active and we're stuck guarding Karzai in Afghanistan for the foreseeable future.
Bush is being advised by men who are pushing the foreign policy goals of Israel, not the United States' goal of eliminating those responsible for the WTC attacks. Who knows? This realization may be slowly beginning to dawn on the president.