Former U.S. Attorney General Janet Reno is sworn in before the 9-11 commission in the Hart Senate office building on Capitol Hill in Washington April 13, 2004. Despite increasing concern about terrorist threats to the United States, the FBI before the September 11, 2001 attacks, was hampered by a culture resistant to change, inadequate resources and legal barriers, the national commission investigating the attacks says. REUTERS/Molly Riley MR