Why Wasn't This Tried Earlier?

The CIA has established joint operation centers in more than two dozen countries where U.S. and foreign intelligence officers work side by side to track and capture suspected terrorists and to destroy or penetrate their networks, according to current and former American and foreign intelligence officials.

The secret Counterterrorist Intelligence Centers are financed mostly by the agency and employ some of the best espionage technology the CIA has to offer, including secure communications gear, computers linked to the CIA's central databases, and access to highly classified intercepts once shared only with the nation's closest Western allies.

The CIA has developed a network of joint operations centers around the world to hunt down terrorists. Why wasn't this developed or considered earlier? Like say during the Clinton Administration when Richard Clarke was in charge of counter terrorism operations for the White House?

Just wondering.