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Date of Release: 30 April 2003
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.Â
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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.Â
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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.Â
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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.Â
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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.
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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.Â
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.Â
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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.
Â
Civil
Society
- Continued
donor support, including increased funding through PVOs/NGOs, for people to people programs, private sector
development and civil society initiatives.
Â
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 --Â 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.
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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.Â
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.
Â
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.Â
- 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.