(Begin Text of Roadmap)
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.
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).
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 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.
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