DUBAI, United Arab Emirates, April 9 — Steps toward democracy in the Arab world, a crucial American goal that just months ago was cause for optimism — with elections held in Iraq, Egypt and the Palestinian areas — are slowing, blocked by legal maneuvers and official changes of heart throughout the Middle East.

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Shawn Baldwin for The New York Times

King Abdullah II of Jordan pledged to make reforms, but a document called the National Agenda has made little headway.