Similarly, a meeting with opposition groups on Sunday led by Mr. Suleiman was seen by many Egyptian activists as nothing more than political theater that yielded no concrete steps toward reform. In a statement afterward — characterized by opposition figures as propaganda — Mr. Suleiman offered some of what the administration sought, but left himself a lot of wiggle room…

But the recommendations do not appear to be binding on the government; in the end, they would have to be approved by a Parliament that took office after an election last year that American officials say was clearly fixed to benefit Mr. Mubarak’s party.

The document promised that “the state of emergency will be lifted based on the security situation and an end to the threats to the security of society.” This is similar to what Mr. Mubarak has said for decades. The state of emergency has never been lifted…

The White House took no issue with Mr. Suleiman’s statement; administration officials said it looked like the setting of some clear goals. On Monday, Mr. Obama said Mr. Suleiman’s talks with opposition leaders the day before were making progress.