A PERFORMANCE-BASED ROAD MAP
TO A PERMANENT TWO-STATE SOLUTION TO THE ISRAELI-PALESTINIAN
The following is a
performance-based and goal driven roadmap, with clear phases,
timelines, target dates, and benchmarks aiming at progress through
reciprocal steps by the two parties in the political, security,
economic, humanitarian, and institution-building fields, under the
auspices of the Quartet. The destination is a final and
comprehensive settlement of the Israel-Palestinian conflict by
2005, as presented in President Bush’s speech of 24 June, and
welcomed by the EU, Russia, and the UN in the 16 July and 17
September Quartet Ministerial statements.
A two state solution to the
Israeli-Palestinian conflict will only be achieved through an end
to violence and terrorism, when the Palestinian people have a
leadership acting decisively against terror and willing able to
build a practicing democracy based on tolerance and liberty, and
through Israeli’s readiness to do what is necessary for a
democratic Palestinian state to be established, and a clear,
unambiguous acceptance by both parties of the goal of a negotiated
settlement as described below. The Quartet will assist and
facilitate implementation of the plan, starting in Phase I,
including direct discussions between the parties as required. The
plan establishes a realistic timeline for implementation. However,
as a performance-based plan, progress will require and depend upon
the good faith efforts of the parties, and their compliance with
each of the obligations outlined below. Should the parties perform
their obligations rapidly, progress within and through the phases
may come sooner than indicated in the plan. Non-compliance with
obligations will impede progress.
A settlement, negotiated between
the parties, will result in the emergence of an independent,
democratic, and viable Palestinian state living side by side in
peace and security with Israel and its other neighbors. The
settlement will resolve the Israel-Palestinian conflict, and end
the occupation that began in 1967, based on the foundations on the
Madrid Conference, the principle of land for peace, UNSCRs 242,
338 and 1397, agreements previously reached by the parties, and
the initiative of Saudi Crown Prince Abdullah – endorsed by the
Beirut Arab League Summit – calling for acceptance of Israel as
a neighbor living in peace and security, in the context of a
comprehensive settlement. This initiative is a vital element of
international efforts to promote a comprehensive peace on all
tracks, including the Syrian-Israeli and Lebanese-Israeli tracks.
The Quartet will meet regularly at
senior levels to evaluate the parties’ performance on
implementation of the plan. In each phase, the parties are
expected t perform their obligations in parallel, unless otherwise
ENDING TERROR AND VIOLENCE,
NORMALIZING PALESTINIAN LIFE,
AND BUILDING PALESTINIAN INSTITUTIONS
PRESENT TO MAY 2003
In Phase I. the Palestinians
immediately undertake and unconditional cessation of violence
according to the steps outlined below; such action should be
accompanied by supportive measures undertaken by Israel.
Palestinians and Israelis resume security cooperation based on the
Tenet work plan to end violence, terrorism, and incitement through
restructured and effective Palestinian security services.
Palestinian undertake comprehensive political reform in
preparation for statehood, including drafting a Palestinian
constitution, and free, fair and open elections upon the basis of
those measures. Israel takes all necessary steps to help normalize
Palestinian life. Israel withdraws from Palestinian areas occupied
from September 28, 2000 and the two sides restore the status quo
that existed at that time, as security performance and cooperation
progress. Israel also freezes all settlement activity, consistent
with the Mitchell report.
At the outset of Phase I:
Palestinian leadership issues
unequivocal statement reiterating Israel’s right to exist in
peace and security and calling for an immediate and unconditional
ceasefire to end armed activity and all acts of violence against
Israelis anywhere. All official Palestinian institutions end
incitement against Israel.
Israeli leadership issues
unequivocal statement affirming its commitments to the two-state
vision of an independent, viable, sovereign Palestinian state
living in peace and security alongside Israel, as expressed by
President Bush, and calling for an immediate end to violence
against Palestinian everywhere. All official Israeli institutions
end incitement against Palestinians.
Palestinians declare an
unequivocal end to violence and terrorism and undertake visible
efforts on the ground to arrest, disrupt, and restrain individuals
and groups conduction and planning violent attacks on Israelis
Rebuilt and refocused Palestinian
Authority security apparatus begins sustained, targeted, and
effective operations aimed at confronting all those engaged in
terror and dismantlement of terrorist capabilities and
infrastructure. This includes commencing confiscation of illegal
weapons and consolidation of security authority, free of
association with terror and corruption.
GOI takes no actions undermining
trust, including deportations, attack on civilians; confiscation
and/or demolition of Palestinian homes and property, as a punitive
measure or to facilitate Israeli construction; destruction of
Palestinian institutions and infrastructure; and other measures
specified in the Tenet Work Plan.
Relying on existing mechanisms and
on-the ground resources, Quartet representatives begin informal
monitoring and consult with the parties on establishment of a
formal monitoring mechanism and its implementation.
Implementation, as previously
agreed, of U.S. rebuilding, training and resumed security
cooperation plan in collaboration with outside oversight board
(U.S. – Egypt – Jordan). Quartet support for efforts to
achieve a lasting, comprehensive cease-fire.
All Palestinian security
organizations are consolidated into three services reporting to an
empowered Interior Minister.
security forces and IDF counterparts progressively resume security
cooperation and other undertakings in implementation of the Tenet
work plan, including regular senior-level meetings, with the
participation of U.S. security officials.
Arab states cut off public and
private funding and all other forms of support for groups
supporting and engaging in violence and terror.
All donors providing budgetary
support for the Palestinians channel these funds through the
Palestinian Ministry of Finance’s Single Treasury Account.
As comprehensive security
performance moves forward, IDF withdraws progressively from areas
occupied since September 28, 2000 and the two sides restore the
status quo that existed prior to September 28, 2000. Palestinian
security forces redeploy to areas vacated by IDF.
Immediate action on credible
process to produce draft constitution for Palestinian statehood.
As rapidly as possible, constitutional committee circulates draft
Palestinian constitution, based on strong parliamentary democracy
and cabinet with empowered prime minister, for public
comment/debate. Constitutional committee proposes draft document
for submission after elections for approval by appropriate
Appointment of interim prime
minister or cabinet with empowered executive
GOI fully facilitates travel of
Palestinian officials for PLC and Cabinet sessions,
internationally supervised security retraining, electoral and
other reform activity, and other supportive measures related to
the reform efforts.
Continued appointment of
Palestinian ministers empowered to undertake fundamental reform.
Completion of further steps to achieve genuine separation of
powers, including any necessary Palestinian legal reforms for this
Establishment of independent
Palestinian election commission. PLC reviews and revises elections
Palestinian performance on
judicial, administrative, and economic benchmarks, as established
by the International Task Force on Palestinian Reform.
As early as possible, and based
upon the above measures and in the context of open debate and
transparent candidate selection/electoral campaign based on a
free, multiparty process, Palestinians hold free, open, and fair
GOI facilitates Task Force
election assistance, registration of voters, movement of
candidates and voting officials. Support for NGOs involved in the
GOI reopens Palestinian Chamber of
Commerce and other closed Palestinian institutions in East
Jerusalem based on a commitment that these institutions operate
strictly in accordance with prior agreements between the parties.
Israel takes measures to improve
the humanitarian situation. Israel and Palestinians implement in
full all recommendations of the Bertini report to improve
humanitarian conditions, lifting curfews, and easing restrictions
on movement of persons and goods, and allowing full, safe, and
unfettered access of international and humanitarian personnel.
AHLC reviews the humanitarian
situation and prospects for economic development in the West Bank
and Gaza and launches a major donor assistance effort, including
to the reform effort.
GOI and PA continue revenue
clearance process and transfer of funds, including arrears, in
accordance with agreed, transparent monitoring mechanism.
Continued donor support, including
increased funding through PVOs/NGOs, for people to people
programs, private sector development and civil society
GOI immediately dismantles
settlement outposts erected since March 2001.
Consistent with the Mitchell
Report, GOI freezes all settlement activity (including natural
growth of settlements).
PHASE II. TRANSITION
JUNE 2003 – DECEMBER 2003
In the second phase, efforts are
focused on the option of creating an independent Palestinian state
with provisional borders and attributes of sovereignty, based on
the new constitution, as a way station to a permanent status
settlement. As has been noted, this goal can be achieved when the
Palestinian people have a leadership acting decisively against
terror, willing and able to build a practicing democracy based on
tolerance and liberty. With such a leadership, reformed civil
institutions and security structures, the Palestinians will have
the active support of the Quartet and the broader international
community in establishing an independent, viable, state.
Progress into Phase II will be
based upon the consensus judgment of the Quartet of whether
conditions are appropriate to proceed, taking into account
performance of both parties. Furthering and sustaining efforts to
normalize Palestinian lives and build Palestinian institutions,
Phase II starts after Palestinian elections and ends with possible
creation of an independent Palestinian state with provisional
borders in 2003. Its primary goals are continued comprehensive
security performance and effective security cooperation, continued
normalization of Palestinian life and institution-building,
further building on and sustaining of the goals outlined in Phase
I, ratification of a democratic Palestinian constitution, formal
establishment of office of prime minister, consolidation of
political reform, and the creation of a Palestinian state with
INTERNATIONAL CONFERENCE: Convened
by the Quartet, in consultation with the parties, immediately
after the successful conclusion of Palestinian elections, to
support Palestinian economic recovery and launch a process,
leading to establishment of an independent Palestinian state with
Such a meeting would be inclusive,
based on the goal of a comprehensive Middle East peace (including
between Israel and Syria, and Israel and Lebanon), and based on
the principles described in the preamble to this document.
Arab states restore pre-intifada
links to Israel (trade offices, etc.).
Revival of multilateral engagement
on issues including regional water resources, environment,
economic development, refugees, and arms control issues.
New constitution for democratic,
independent Palestinian state is finalized and approved by
appropriate Palestinian institutions. Further elections, if
required, should follow approval of the new constitution.
Empowered reform cabinet with
office of prime minister formally established, consistent with
Continued comprehensive security
performance, including effective security cooperation on the bases
laid out in Phase I.
Creation of an independent
Palestinian state with provisional borders through a process of
Israeli-Palestinian engagement. Launched by the international
conference. As part of this process, implementation of prior
agreements, to enhance maximum territorial contiguity, including
further action on settlements in conjunction with establishment of
a Palestinian state with provisional borders.
Enhanced international role in
monitoring transition, with the active, sustained, and operational
support of the Quartet.
Quartet members promote
international recognition of Palestinian state, including possible
AND END OF THE ISRAELI – PALESTINIAN CONFLICT
2004 – 2005
Progress into Phase III, based on
consensus judgment of Quartet, and taking into account actions of
both parties and Quartet monitoring. Phase III objectives are
consolidation of reform and stabilization of Palestinian
institutions, sustained, effective Palestinian security
performance, and Israeli-Palestinian negotiations aimed at a
permanent status agreement in 2005.
SECOND INTERNATIONAL CONFERENCE:
Convened by Quartet, in consultation with the parties, at
beginning of 2004 to endorse agreement reached on an independent
Palestinian state with provisional borders and formally to launch
a process with the active, sustained, and operational support of
the Quartet, leading to a final, permanent status resolution in
2005, including on borders, Jerusalem, refugees, settlements; and,
to support progress toward a comprehensive Middle East settlement
between Israel and Lebanon and Israel and Syria, to be achieved as
soon as possible.
Continued comprehensive, effective
progress on the reform agenda laid out by the Task Force in
preparation for final status agreement.
Continued sustained and effective
security performance, and sustained, effective security
cooperation on the basis laid out in Phase I.
International efforts to
facilitate reform and stabilize Palestinian institutions and the
Palestinian economy, in preparation for final status agreement.
Parties reach final and
comprehensive permanent status agreement that ends the
Israel-Palestinian conflict in 2005, through a settlement
negotiated between the parties based on UNSCR 242, 338, and 1397,
that ends the occupation that began in 1967, and includes an
agreed, just, fair, and realistic solution to the refugee issue,
and a negotiated resolution on the status of Jerusalem that takes
into account the political and religious concerns of both sides,
and protects the religious interests of Jews, Christians, and
Muslims worldwide, and fulfills the vision of two states, Israel
and sovereign, independent, democratic and viable Palestine,
living side-by-side in peace and security.
Arab state acceptance of full
normal relations with Israel and security for all the states of
the region in the context of a compressive Arab-Israeli peace.