The report, by the special inspector general for Iraq reconstruction, describes some progress but also an array of projects that have gone awry, sometimes astonishingly, like electrical substations that were built at great cost but never connected to the country's electrical grid.

With more than 93 percent of the American money now committed to specific projects, it could become increasingly difficult to solve those problems.

Issues like those "should have been considered before," said Jim Mitchell, a spokesman for the inspector general's office. "It's very critical right now, with so little of the U.S. money left to be committed, that they're going to have to make these determinations very quickly."

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Bringing democracy to Iraq means more than just having elections and a constitution.