"Of all our recommendations, strengthening congressional oversight may be among the most difficult and important," the panel wrote. "So long as oversight is governed by current congressional rules and resolutions, we believe the American people will not get the security they want and need."

It was a solemn pledge, repeated by Democratic leaders and candidates over and over: If elected to the majority in Congress, Democrats would implement all of the recommendations of the bipartisan commission that examined the attacks of Sept. 11, 2001.

But with control of Congress now secured, Democratic leaders have decided for now against implementing the one measure that would affect them most directly: a wholesale reorganization of Congress to improve oversight and funding of the nation's intelligence agencies. Instead, Democratic leaders may create a panel to look at the issue and produce recommendations, according to congressional aides and lawmakers.

Because plans for implementing the commission's recommendations are still fluid, Democratic officials would not speak for the record. But aides on the House and Senate appropriations, armed services and intelligence committees confirmed this week that a reorganization of Congress would not be part of the package of homeland-security changes up for passage in the "first 100 hours" of the Democratic Congress.

"The person who controls your budget is the person you listen to," Kean said.

"We think this is extremely crucial," Kean said of a reorganization shifting budget authority to the intelligence committees. But, he added, there are "a lot of old bulls in both parties who just don't want to do it."