“It [the covert program] never took shape” is the same thing as saying “We only did it a few times.” Any number of times greater than zero times is illegal.
And how does a program not take shape if it is in use from 2001 to 2009? If there is a start date and end date, then it is a fully shaped program, not just an idea about a possible program.
“It [the covert program] never took shape” is the same thing as saying “We only did it a few times.” Any number of times greater than zero times is illegal.
And how does a program not take shape if it is in use from 2001 to 2009? If there is a start date and end date, then it is a fully shaped program, not just an idea about a possible program.
*It never took shape* could also be a euphemism for *went horribly awry in ways we cannot begin to fathom*