That. The worst law enforcement failure was leadership. The Incident Commander ordered that nothing be done, and LEOs stood around, following orders. If his order had been "follow me" or "Jim, you are in tactical command. Breach the door, and end this NOW!" I think that almost all, perhaps all, of the officers condemned as cowards would have followed.
Some “ORDERS” are issued by COWARDS and made to be IGNORED.
This was one of those orders, and only COWARDS would have obeyed it!