"You don't deploy forces into harm's way without knowing what's going on," Panetta said. "(We) felt we could not put forces at risk in that situation." (CNN)
Troops are deployed to places around the world once the President ordered them, and once the missions were clearly drawn and targets clearly defined. Congress has the authority to declare war, but symbolically. In other words, Congressmen/women vote to give the President the authority to declare war. The President then deploys and declares war.
On the other hand, when a US installation is under attack back home or in foreign lands, the need to intervene exceeds the need for a clear mission. For instance, when a group of terrorist takes over a building, the first thing that commanders do is getting to the scene and establish a command post. The commanders would first establish the target at sight using available information, then executing it.
In this case, a military intervention - whether by air or land - would have thwarted this terrorist seven hour invasion of the US embassy. The enemies would have been identified immediately once soldiers arrived at the scene with night vision; they would have either ran away from the scene or soldiers would have seen them firing into the building, and I am sure that these terrorists would fire on any US helicopter or fighter jets.
This is the head of CIA who was credited for sending in US Navy Seals to Pakistan based on so-called "Leads" - no hard evidence! The seals went in to Pakistan not knowing who Osama Bin Laden was and how many guards were there. For him to say or imply that the US Seals wouldn't have identified the enemies is just a lie; a convenient excuse to help President Obama cover up this huge scandal.
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