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A performance-based roadmap
to a permanent two-state solution to the Israeli-Palestinian
conflict
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 United States, European Union, United Nations, and Russia].
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 and able to build a
practicing democracy based on tolerance and liberty, and through Israel'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 of 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 to perform their
obligations in parallel, unless otherwise indicated.
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PHASE
I:
ENDING
TERROR AND VIOLENCE, NORMALIZING PALESTINIAN LIFE, AND BUILDING
PALESTINIAN INSTITUTIONS -- PRESENT TO MAY
2003 |
In Phase I, the Palestinians
immediately undertake an 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. Palestinians 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 commitment 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 Palestinians everywhere. All official
Israeli institutions end incitement against Palestinians.
SECURITY
Palestinians declare an
unequivocal end to violence and terrorism and undertake visible efforts on
the ground to arrest, disrupt, and restrain individuals and groups
conducting and planning violent attacks on Israelis anywhere.
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, attacks 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.
Restructured/retrained Palestinian
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.
PALESTINIAN
INSTITUTION-BUILDING
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 Palestinian institutions.
Appointment of interim prime
minister or cabinet with empowered executive authority/decision-making
body.
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 purpose.
Establishment of independent
Palestinian election commission. PLC reviews and revises election law.
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, multi-party
process, Palestinians hold free, open, and fair elections.
GOI facilitates Task Force
election assistance, registration of voters, movement of candidates and
voting officials. Support for NGOs involved in the election process.
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.
HUMANITARIAN RESPONSE
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.
CIVIL SOCIETY
Continued donor support, including
increased funding through PVOs/NGOs, for people to people programs,
private sector development and civil society initiatives.
SETTLEMENTS
GOI immediately dismantles
settlement outposts erected since March 2001.
Consistent with the Mitchell
Report, GOI freezes all settlement activity (including natural growth of
settlements).
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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 provisional borders.
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 provisional borders.
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 draft
constitution.
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 UN
membership.
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PHASE
III:
PERMANENT
STATUS AGREEMENT
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
bases 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 comprehensive Arab-Israeli peace. |