Loyalist paramilitary groups are encountering internal difficulties that are hampering the move to politics, the British and Irish ceasefire monitor has reported.
The Independent Monitoring Commission said the largest group, the UDA, was making some progress in its efforts to end paramilitarism.
However, it noted that internal tensions had slowed the transformation. It further reported that the UVF was also being hindered by resistance from some members.
The latest IMC report, which was sent recently to the two governments, covers the summer's disturbances in loyalist areas in Bangor, Co Down, and Carrickfergus, Co Antrim. But it does not include the killing of Cullyhanna man Paul Quinn (21) at an isolated Border farm near Castleblayney, Co Monaghan.
It found that UDA members were involved in the trouble involving rival members of the the organisation in Carrickfergus in August, during which a policeman was shot and wounded.
The commissioners concluded the UDA was also involved in the violence in Bangor that followed a series of PSNI operations in the town's Kilcooley estate.
The report said of the UDA: "The organisation is not centrally structured and, as has been demonstrated in the six months under review, this limits its capacity to deliver change quickly. The pace of real change is far too slow. We will continue to judge the organisation by what it does, not by what it says."
Referring to the UVF, the report adds: "The leadership has set a strategy to which it is committed and has started to implement it. But the position is not yet entirely transformed and there are some pockets of resistance.
"It is understandable that the leadership should want to manage this carefully."
The commissioners restated their belief that the IRA was not involved in violence or crime, despite the actions of some individuals. "We remain of the firm view that the organisation is fully committed to the political path and will not be diverted from it," they said.
Minister for Justice Brian Lenihan made clear he did not expect either group to complete the transformation to politics quickly.
"It is encouraging that there are elements in the leadership of the two main loyalist groups who are seeking to move these organisations in the right direction," he said. "It is clear from [ the] report, however, that there is still some way to go."
Northern Secretary Shaun Woodward said: "The report by the IMC builds on previous assessments that the Provisional IRA is fully committed to pursuing the political path and that it will not be diverted from it.
"In contrast, within loyalism, the pace of real change remains too slow. Loyalism cannot be allowed to lag behind. I recognise that there are signs within the loyalist leadership that they want to bring their communities out of conflict."
He added: "Loyalists need to do more to convince society of their bona fides."