Administration and military officials acknowledge that the September report will not show any significant progress on the political benchmarks laid out by Congress. How to deal in the report with the lack of national reconciliation between Iraq's warring sects has created some tension within the White House.

Despite Bush's repeated statements that the report will reflect evaluations by Petraeus and Ryan Crocker, the U.S. ambassador to Iraq, administration officials said it would actually be written by the White House, with inputs from officials throughout the government.

And though Petraeus and Crocker will present their recommendations on Capitol Hill, legislation passed by Congress leaves it to the president to decide how to interpret the report's data.

The senior administration official said the process had created "uncomfortable positions" for the White House because of debates over what constitutes "satisfactory progress."