Reform is a politically charged issue in the Middle East. Governments admit change is necessary, but do not want to surrender power. Opposition groups want democracy but cannot generate sufficient momentum. The Bush administration's "freedom agenda" has brought the issue into focus but blurred the distinction between democracy promotion and forceful regime change. Some governments have taken steps toward political reform. Are these meaningful changes or empty attempts to pacify domestic and international public opinion? How do we distinguish reforms that alter the character of the political system from those that are only window dressing? Beyond the Fa