Springsteen wrote this in response to the September 11 attacks on America. The entire album deals with it in some way, often from the point of view of the victims.
Many of the songs that came out soon after September 11, 2001 in the US were calls for revenge and dripped with patriotism (Charlie Daniels' "This Ain't No Rag, It's A Flag), but this is a much more introspective look at the events, as Springsteen attempts to reflect the many different emotions caused by the tragedy. In addition to anger, many Americans felt grief, frustration, and bewilderment in their efforts to deal with it.
This was the first album of original material by Bruce Springsteen and The E Street Band since 1984, when they released Born In The U.S.A.
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