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
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
Israel takes all necessary steps to help normalise Palestinian
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
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 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
* 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
* 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
* Arab states cut off public and private funding and all other
forms of support for groups supporting and engaging in violence and
* 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.
* 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
* 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 effort.
* GOI and PA continue revenue clearance process and transfer of
funds, including arrears, in accordance with agreed, transparent
* 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
* 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
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
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,
- 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
* 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
* 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
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
* Continued comprehensive, effective progress on the reform agenda
laid out by the Task Force in preparation for final status
* Continued sustained and effective security performance, and
sustained, effective security cooperation on the bases laid out in
* 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.