The article also pointed out Bush's reluctance for such a reorginization.
This reluctance, along with the hastiness with which the plan came together, leads me to think that Bush realized that he needed to get out in front of Congress so that he could control the details of the reorginization.
And just last year [2000], the National Commission on Terrorism — chaired by former Reagan counterterrorism head Paul Bremer — issued a report with the eerily foreboding image of the Twin Towers on its cover. A bipartisan effort — led by Jon Kyl and Dianne Feinstein — was made to attach the recommendations of the panel to an intelligence authorization bill. But Sen. Patrick Leahy feared a threat to "civil liberties" and torpedoed the effort. After the bombing of the U.S.S. Cole, Kyl and Feinstein tried yet again. This time, Leahy was content with emaciating the proposals instead of defeating them outright. The weakened proposals died as the House realized "it wasn't worth taking up." President Clinton certainly could have encouraged Sen. Leahy to drop his opposition, but he didn't.
Another great article on the subject can be found at: