Because when he came into office he didn't know 9/11 was only eight months away.
I wondered why he hasn't cleaned house since. Although, perhaps he felt he needed every body, no matter how compromised, or he expected a patriotic post 9/11 unification to occurr in these agencies.
Whatever, if he was smart, he'd go through these agencies, smiting people upside the head after re-election in November.
Get rid of the CYA euro-butt kissers and make room for the guys who get that protectect the country is more important that careerism.