Fifteen of the nineteen 9/11 hijackers were Saudi nationals. The theory that the Saudi government — as an institution — directed or materially supported the attacks has circulated since 2001 and gained traction when the "28 pages" of the Joint Congressional Inquiry were declassified in July 2016. Those pages documented contacts between several hijackers and individuals with connections to the Saudi government, including Saudi consulate and embassy staff. FBI declassifications under a 2021 Biden executive order (Operation Encore documents) provided additional detail on specific Saudi government-affiliated individuals who assisted hijackers in the Los Angeles area. The 9/11 Commission (2004) found no evidence that the Saudi government as an institution, or senior Saudi officials acting in their official capacity, funded or directed al-Qaeda's attack. The distinction between "Saudi government-affiliated individuals provided support" (substantially documented) and "Saudi government as state actor directed the attack" (not established) is central to a fair assessment.