IT'S HARD TO SEE how the country's drug safety agency will emerge unscathed from a string of failures -- nor should it. Devastating scandals, touching millions of lives, demand a tough appraisal of a fumbling agency that has lost its way. The Food and Drug Administration badly needs a shakeup and fresh leadership. It also requires new rules that will bar a repeat of the sluggish and negligent conduct that produced so many mistakes. Botched flu vaccines, late warnings on the dangers of anti-depression drugs for children, a pill recall by Vioxx maker Merck suggest the agency isn't doing its...