The full text of a roadmap to peace in the Middle
East, presented to Palestinian and Israeli leaders by Quartet mediators -
the United Nations, European Union, United States and Russia.
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 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 neighbours.
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
neighbour 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, normalising 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 co-operation
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 normalise 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 co-operation 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 US rebuilding, training and
resumed security co-operation plan in collaboration with outside
oversight board (US-Egypt-Jordan). Quartet support for efforts to
achieve a lasting, comprehensive ceasefire.
- 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 co-operation and other
undertakings in implementation of the Tenet work plan, including regular
senior-level meetings, with the participation of US 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 28 September 2000 and the two
sides restore the status quo that existed prior to 28 September 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 normalise 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 co-operation, continued normalisation 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
finalised 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 stabilisation 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 stabilise 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
fulfils 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.