“This year will bring change in Iraq that will fundamentally affect every aspect of the reconstruction program. This change began on January 1 when the Security Agreement and the Strategic Framework Agreement became effective, redefining the bilateral relationship between Iraq and the United States. The turn-of-the-year transfer of the International Zone to Government of Iraq control symbolized the new era that has begun to unfold in U.S.-Iraqi relations. As this new era begins, several salient challenges confront the reconstruction program.”