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
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
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
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.
· 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,
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.
· 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
· 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
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.
· 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
· 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
· GOI and PA continue
revenue clearance process and transfer of funds, including arrears, in
accordance with agreed, transparent monitoring mechanism.
· Continued donor
support, including increased funding through PVOs/NGOs, for people to people
programs, private sector development and civil society initiatives.
· GOI immediately
dismantles settlement outposts erected since March 2001.
· Consistent with the
Mitchell Report, GOI freezes all settlement activity (including natural growth
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.
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
· 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
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
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.
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.
Released on April 30, 2003