Though Crocker acknowledged slow political progress in many areas, and a lack of progress on many important pieces of legislation, he argued that, "a secure, stable democratic Iraq at peace with its neighbors is attainable." Though a national framework has fallen short of being implemented legislatively in key issues such as oil distribution, he observed that "even in the absence of legislation there is practical action as the central government shares oil revenues through budget allocations on an equitable basis with Iraq's provinces." He pointed out that provincial gains have been more pronounced, explaining that "there is abundant evidence that the security gains have opened the door for meaningful politics."[4]