There is no agreement on how to share oil revenue, no resolution of the basic relationship between the country's three major groups, and no decision on whether Iraq will have a strong central government or be a loose confederation. And no resolution on the future place of the Kurds and Kirkuk.
Joel Wing studies the connections between terrorism, insurgency, and government:
It’s much easier to come up with local projects and create community security forces than it is to reform an entire government. That can be seen in the current situation in Iraq. The insurgency has lost most of its popular base, but it still continues because Baghdad is dysfunctional, and militants still consider it a tool of the Americans.