US defence secretary Donald Rumsfeld, in Baghdad today for an unannounced visit to US commanders, said security in Iraq now depends as much on the Iraqi government's political success as on beating the insurgency militarily.
Mr Rumsfeld arrived in Iraq as suicide bombers killed 16 people outside the main entrance of the heavily fortified Green Zone government compound, where he was due to hold his meetings.
The attacks also coincided with a parliamentary session at which one lawmaker warned that civil war was close. "We're at a point now when the security situation depends as much on the reconciliation process and on the strengthening of (government) ministries," Mr Rumsfeld told reporters travelling with him. "Success in those areas will determine the success from a security standpoint."
"It's as much a political task as anything," he said.
Security in Baghdad was among the main topics Mr Rumsfeld said he wanted to discuss with American military commanders.
Violence in the capital has not abated despite a security crackdown that put thousands of extra troops on the streets. Since parliament last met last week, dozens of people have been killed in Baghdad in bombings and some of the worst attacks yet seen by sectarian gunmen.
Mr Rumsfeld told reporters many parts of Baghdad experience few violent incidents. But the government must persuade people to buy into the reconciliation process to reduce violence, he said.
He gave the same message to US troops at a base in Balad where he stopped before heading to Baghdad by helicopter. One serviceman asked him about growing sectarian violence in Iraq. "The solution to that is not military," he said. "The solution is a reach-out" to Sunni Muslims, a minority in mainly Shia Muslim Iraq.
Those challenges leave Iraq unable to take decisions that might allow the US to reduce its troop levels - a critical issue for the Bush administration at home where anti-war sentiment and calls for a withdrawal timetable have grown in a congressional election year.
"We haven't gotten to that point," Rumsfeld said on troop cuts. A 129,000-strong American force is serving in Iraq more than three years into the war in which about 2,500 US troops have died.
President George W. Bush has said US troops will stay until conditions improve and Rumsfeld has said the government asked Army General George Casey and US Ambassador to Iraq Zalmay Khalilzad to work with the Iraqi government to develop a plan "comfortable" for both sides.