A Performance-
Based Road Map to a Permanent Two-State Solution to the Isreali - 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 destination is a final
and comprehensive settlement of the Israel-Palestinian conflict by 2005,
as presented in President Bushs 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 Israelis
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 indicated.
PHASE I:
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 Israels 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.
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 conduction 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, 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.
Restructured/retained 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 Finances 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 elections 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,
multiparty 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).
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.
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 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.