here's more on how it happened:
I found this at
http://www.cooperativeresearch.org/wot/sept11/911commission.html "... The New York Times reported, “The accord called for a panel of 10 private citizens of "national recognition" with backgrounds in public service, law enforcement, commerce and foreign affairs. Four would be appointed by Democratic leaders in the House and Senate and four by Republican leaders. One co-chairman would be appointed by the president, and a second co-chairman by the Democratic leader of the Senate in consultation with his counterpart in the House.”
Sounds like a commission convened to offend nobody in office, while palliating the people holding pictures of their dead relatives.