Kurds' Return to City Shakes Politics in Iraq
Exile of Kurds from Kirkuk in late 1980's planted seeks for bitter ethnic antagonism that has grown into most incendiary issue outside of Sunni-led insurgency, and one that more than any other is delaying formation of new government; when Kurds were relocated, Arabs were settled there to exploit vast oil reserves and solidify control of region; fear is that growing struggle over Kirkuk and efforts to restore Kurds to jobs and property without disenfranchsing Arabs could ignite civil war; debate has so inflamed passions that any real decision on Kirkuk's future may be delayed; Kurdish leaders says their claim to region has historical basis; while many realize that Arabs brought into region are also victims of Saddam Hussein, there is disagreement on how to rectify situation; Americans created Iraqi Property Claims Commission to rule on restitution, but only 25 claims out of 10,044 have been decided; photos (M)