FALLUJA, Iraq, July 6 - American and Iraqi officials say that a decision in April to pull back American forces from Falluja inadvertently created a safe haven for terrorists and insurgents there. But officials are reluctant to send American troops back into the city for fear of touching off another uprising.

The officials say they are unsure how to proceed, but agree they merely postponed the problem when the Americans halted an attack in April, brokering a deal to keep Americans out of Falluja and allow local Iraqis to police the city instead.

http://www.nytimes.com/2004/07/08/international/middleeast/08fall.html?hp=&pagewanted=all&position=