The 9/11 Commission was created by Congress on November 27, 2002, and published its final report on July 22, 2004. It found “four kinds of failures: in imagination, policy, capabilities, and management.”
One section is titled “Institutionalizing Imagination: The Case of Aircraft as Weapons.” The commission found that the intelligence agencies had not applied their own methods for analyzing surprise attacks to the threat of hijacked aircraft. It argued that such imagination had to be made routine.