The government's $5 billion effort to help small businesses recover from the Sept. 11 attacks was so loosely managed that it gave low-interest loans to companies that didn't need terrorism relief — or even know they were getting it. And while some at New York's Ground Zero couldn't get assistance they desperately sought, companies far removed from the devastation — a South Dakota country radio station, hair salons in Monroe, a Virgin Islands perfume shop, a Mukilteo pet-grooming shop and more than 100 Dunkin' Donuts and Subway sandwich shops — had no problem winning the government-guaranteed loans.