The Beilin-Abu Mazen Document
(October 31, 1995)
Though this agreement was neverly formally adopted by either Israel or the Palestinians, the ideas expressed - particularly with regard to establishing the capital of a future Palestinan state in a suburb of Jerusalem
known as Abu Dis - have often been cited as potential solutions to some of the outstanding issues in the peace negotiations.
for the conclusion of a final status agreement
between Israel and the Palestine Liberation
THE ATTAINMENT OF PEACE
BETWEEN THE ISRAELI AND THE PALESTINIAN PEOPLES,
RESOLVES THE CORE PROBLEM AT THE HEART OF
THE ISRAELI-ARAB CONFLICT AND COMMENCES AN
ERA OF COMPREHENSIVE PEACE CONTRIBUTING THEREBY
TO THE STABILITY, SECURITY, AND PROSPERITY
OF THE ENTIRE MIDDLE EAST.
The Government of the State
of Israel and the Palestine Liberation Organization
(hereafter "the P.L.O."), the representative
of the Palestinian people;
WITHIN the framework of
the Middle East peace process initiated at
Madrid in October 1991;
AIMING at the achievement
of a just, lasting and comprehensive peace
in the Middle East based on the implementation
of UN Security Council Resolutions 242 and
338 in all their aspects;
REAFFIRMING their adherence
to the commitments expressed in the Declaration
of Principles (hereinafter "the DOP")
signed in Washington D.C. on September 13th
1993, the Cairo Agreement of May 4th 1994,
and the Interim-Agreement of September 28th,
REAFFIRMING their determination
to live in peaceful coexistence, mutual dignity
DECLARING as null and void
any agreement, declaration, document or statement
which contradicts this Framework Agreement;
DESIROUS of reaching a full
agreement on all outstanding final status
issues as soon as possible, not later than
May 5th 1999, as stipulated in the DOP;
HEREBY AGREE on the following
Framework for a Final Status Agreement;
I: THE ESTABLISHMENT OF THE PALESTINIAN STATE
AND ITS RELATIONS WITH THE STATE OF ISRAEL
1. As an integral part of
this Framework Agreement and the full Final
a. The Government of Israel shall extend
its recognition to the independent State
of Palestine within agreed and secure borders
with its capital al-Quds upon its coming
into being not later than May 5th 1999.
b. Simultaneously, the State of Palestine
shall extend its recognition to the State
ofIsrael within agreed and secure borders
with its capital Yerushalayim.
c. Both sides continue to look favorably
at the possibility of establishing a Jordanian-Palestinian
confederation, to be agreed upon by the
State of Palestine and the Hashemite Kingdom
2. The State of Israel and
the State of Palestine (hereinafter: "the
parties") will thereby extend mutual
recognition of their right to live in peace
and security within mutually agreed borders
as defined in Article II of this agreement
and in the Final Status Agreement. In particular,
the Parties shall:
a. Recognize and respect each other's
sovereignty, territorial integrity and political
b. Renounce the use of force, and the
threat of force as an instrument of policy
and commit themselves to a peaceful resolution
of all disputes between them.
c. Refrain from organizing, instigating,
inciting, assisting or participating in
acts of violence, subversion or terrorism
against the other party.
d. Take effective measures to ensure that
acts of or threats of violence do not originate
from or through their respective territories,
including their airspace and territorial
waters, and take appropriate measures against
those who perpetrate such acts.
e. Undertake not to join, assist, or cooperate
with any military or security coalition,
organization, or alliance hostile to either
f. Exchange and ratify the instruments
of peace between them as shall be defined
in the full Final Status Agreement.
II: THE DELINEATION OF SECURE AND RECOGNIZED
1. The secure and recognized
borders between the State of Israel and the
future State of Palestine are described in
the attached Maps and in Annex One of the
Final Status Agreement. The Parties recognize
that these borders, including their respective
subsoil, airspace and territorial waters shall
2. The parties shall define
the route and mode of implementation of, as
well as the extent of, territory to be yielded
by Israel for the agreed extra-territorial
passage between the Gaza Strip and the West
Bank (as described in Annex One of the Final
3. The border in the Jerusalem
area is to be delineated in accordance with
the provisions of Article VI of this Framework
4. The Parties shall recognize
the final borders between the two states as
permanent and irrevocable.
III: THE CREATION OF NORMAL AND STABLE INTER-STATE
1. Upon the exchange of
the instruments of ratification of the peace
treaty, the Parties agree to establish full
diplomatic and consular relations between
them and to promote economic and cultural
relations including the free movement of people,
goods, capital and services across their borders.
2. The Parties shall continue
to cooperate in all areas of mutual interest
and will seek to promote jointly and separately
similar regional cooperation with other states
in the area and the international community.
3. The Parties shall seek
to promote mutual cultural relations and will
encourage mutual programs for the dissemination
of their respective national customs, folklore
and traditions between them.
4. The Parties shall secure
freedom of access to places of religious,
and historical significance on a non-discriminatory
basis. Access to, worship in, and protection
of all holy places and sites shall be guaranteed
by both Parties.
IV: SCHEDULE OF ISRAELI MILITARY WITHDRAWAL
AND SECURITY ARRANGEMENTS
1. In implementing UN Security
Council Resolutions 242 and 338, the parties
agree that the withdrawal of Israeli Military
and Security Forces shall be carried out in
a. Withdrawal from the Central areas of
the West Bank and the entire Gaza Strip,
(as defined in Annex Two to the Final Status
Agreement and attached Map/s), to commence
not later than May 5th 1999 and be completed
not later than September 4th, 1999;
b. Withdrawal from the Eastern areas of
the West Bank (as defined in Annex Two to
the Final Status Agreement), to commence
not later than September 5th 1999 and be
completed not later than January 4th, 2000;
c. Withdrawal from the Western areas of
the West Bank (as defined in Annex Two to
the Final Status Agreement) to commence
not later than January 5th 2000 and be completed
not later than May 4th 2000.
2. Thereafter Israel shall
maintain a minimal residual force within agreed
military compounds and in specified locations.
This residual force will comprise:
a. Three reinforced battalions, two existing
Military Emergency Stores, and integral
logistical forces (their location and terms
of lease, duration, mode of deployment,
function and numerical strength, are detailed
in Annex Two to the Final Status Agreement).
b. Three Early Warning stations and three
Air Defense Units as defined and agreed
in Annex Two to the Final Status Agreement
will be maintained until May 5th 2007 or
until peace agreements and bilateral security
arrangements between Israel and the relevant
Arab parties are attained, whichever comes
3. The Parties agree to
the formation of an Israeli-Palestinian Coordinating
Security Commission (hereinafter "the
CSC") to oversee the implementation of
Israel's military withdrawal, to establish
the modalities governing its residual military
presence, and to coordinate all other security
matters (its structure and authorities are
detailed in Annex Two to the Final Status
Agreement). The CSC shall also implement an
agreed schedule for the introduction of Palestinian
Security Forces (hereinafter "PSF")
into Palestinian territories commensurate
with and parallel to the withdrawal of Israeli
forces. The Parties agree that the CSC shall
commence its deliberations not later than
May 5th, 1998 (see Annex Two to the Final
4. Joint Israeli-Palestinian
patrols will be held along the Jordan River
as well as along both sides of the Israeli-Palestinian
border, in order to deter, prevent and combat
the infiltration or organization of cross-border
terrorism and other forms of violent activities.
The mandate and duration of these patrols
shall be determined by the CSC, as detailed
in Annex Two to the Final Status Agreement.
5. The Parties agree that
the State of Palestine shall be demilitarized.
The PSF shall remain subject to agreed limitations
as defined in Annex Two to the Final Status
Agreement. By mutual agreement, and not before
May 5th 2007, Palestinian self-defense capabilities
shall be negotiated by the Parties.
6. The Parties agree that
the co-sponsors and other parties agreed upon,
shall be invited to guarantee the arrangements
for Israel's military withdrawal and other
bilateral security agreements as stipulated
in this Framework Agreement. In their capacity
as guarantors, the said third-parties shall
also be invited to participate in observation,
verification and other technical duties to
be agreed in the CSC. The said third parties
shall accordingly be requested to establish
and finance a permanent International Observer
Force (hereafter the IOF) whose mandate and
functions are described in Annex Two of the
Final Status Agreement.
V: ISRAELI SETTLEMENTS
1. Subsequent to the establishment
of the Independent State of Palestine and
its recognition by the State of Israel as
described in Articles I and III of this agreement:
a. There will be no exclusive civilian
residential areas for Israelis in the State
b. Individual Israelis remaining within
the borders of the Palestinian State shall
be subject to Palestinian sovereignty and
Palestinian rule of law.
c. Individual Israelis who have their
permanent domicile within the Palestinian
State as of May 5th 1999, shall be offered
Palestinian citizenship or choose to remain
as alien residents, all without prejudice
to their Israeli citizenship.
d. Within the agreed schedule for the
withdrawal of Israeli forces from Palestinian
territories as described in Article IV and
Annex Two to the Final Status Agreement,
the Israeli Government and its security
forces shall maintain responsibility for
the safety and security of Israeli settlements
outside the areas of Palestinian security
jurisdiction, pending the transfer of said
areas to full Palestinian rule.
e. The CSC shall establish the mechanism
for dealing with security issues relating
to Israeli citizens in Palestine and Palestinian
citizens in Israel.
1. Jerusalem shall remain
an open and undivided city with free and unimpeded
access for people of all faiths and nationalities.
2. The Parties further agree
that a reform of the current Jerusalem Municipal
System and its boundaries shall be introduced
not later than May 5th 1999, and shall not
be subject to further change by law or otherwise,
unless by mutual consent, prior to the fulfillment
of the provisions of paragraph 9 below. This
reform shall expand the present municipal
boundaries of Jerusalem and shall define the
city limits of the "City of Jerusalem",
to include: Abu Dis, Eyzariya, ar-Ram, Az-zaim,
Ma'ale Adumim, Givat Ze'ev, Givon, and adjacent
areas in the attached map/s.
3. Within the "City
of Jerusalem", neighborhoods inhabited
by Palestinians will be defined as "Palestinian
boroughs" The exact borders of the "City
of Jerusalem" and of the Israeli and
Palestinian boroughs are delineated and described
in Annex Three to the Final Status Agreement
and attached Map/s. The number of Israeli
boroughs and of Palestinian boroughs will
reflect the present demographic balance of
2:1. This proportion will be updated in accordance
with the modalities, criteria and schedule
as described in Annex Three to this Final
4. The Parties agree to
maintain one Municipality for the "City
of Jerusalem" in the form of a Joint
Higher Municipal Council, formed by representatives
of the boroughs. These representatives will
elect the Mayor of the "City of Jerusalem"
In all matters related to the areas of the
"City of Jerusalem" under Palestinian
sovereignty, the Joint Higher Municipal Council
shall seek the consent of the Government of
Palestine. In all matters related to the areas
of the "City of Jerusalem" under
Israeli sovereignty, the Joint Higher Municipal
Council shall seek the consent of the Government
5. The "City of Jerusalem"
shall consist of the Joint Higher Municipal
Council, two sub-municipalities - an Israeli
sub-municipality, elected by the inhabitants
of the Israeli boroughs, and a Palestinian
sub-municipality, elected by the inhabitants
of the Palestinian boroughs - as well as a
Joint Parity Committee for the Old City Area
as described in paragraph 12 below.
6. The Parties further agree
that the municipality of the "City of
a. Delegate strong local powers to the
sub-municipalities including the right to
local taxation, local services, an independent
education system, separate religious authorities,
and housing planning and zoning, as detailed
in Annex Three to the Final Status Agreement;
b. Develop a twenty-five year Master Plan
for the "City of Jerusalem" with
agreed modalities for its balanced implementation,
including safeguards for the interests of
c. Provide for Israeli and Palestinian
citizens resident within the jurisdiction
of the City of Jerusalem Municipality and
sub-municipalities to vote and seek election
for all elected posts as shall be specified
in the Jerusalem Municipal bylaws.
7. Within the "City
of Jerusalem" both parties recognize
the Western part of the city, to be "Yerushalayim"
and the Arab Eastern part of the city, under
Palestinian sovereignty, to be "al-Quds"
(see attached Map/s).
8. Upon the exchange of
the instruments of ratification of the peace
treaty between them:
a. The Government of the State of Palestine
shall recognize Yerushalayim, as defined
under Article VI, paragraph 7 and Annex
Three to the Final Status Agreement, as
the sovereign Capital of the State of Israel.
b. The Government of the State of Israel
shall recognize al-Quds, as defined under
Article VI, paragraph 7 and Annex Three
to the Final Status Agreement, as the sovereign
Capital of the State of Palestine.
9. The ultimate sovereignty
of the area outside Yerushalayim and al-Quds,
but inside the present municipal boundaries
of Jerusalem, shall be determined by the parties
as soon as possible. Each party maintains
its position regarding the sovereign status
of this area. A joint Israeli-Palestinian
committee for determining the final status
of this area shall be established not later
than May 5th, 1999 and shall commence its
deliberations immediately thereafter. Without
prejudice to the determination of the final
status of this area:
a. Palestinian citizenship shall be extended
to Palestinian residence of this area.
b. In certain matters Palestinian citizens
residing in this area shall resort to Palestinian
law (as detailed in Annex Three to the Final
c. The Parties will enjoy free access
to and use of the Qalandia Airport in this
area. A new designated Palestinian terminal
shall be constructed, to commence operation
concurrent with the signing of the Treaty
of Peace (for the modalities of operation,
see Annex Three to the Final Status Agreement).
10. The Parties acknowledge
Jerusalem's unique spiritual and religious
role for all three great monotheistic religions.
Wishing to promote interfaith relations and
harmony among the three great religions, the
Parties accordingly agree to guarantee freedom
of worship and access to all Holy Sites for
members of all faiths and religions without
impediment or restriction.
11. In recognition of the
special status and significance of the Old
City Area (see map/s) for members of the Christian,
Jewish, and Muslim faiths, the parties agree
to grant this area a special status.
12. The Parties further
a. The Palestinian sub-municipality shall
be responsible for the municipal concerns
of the Palestinian citizens residing in
the Old City Area and their local property.
b. The Israeli sub-municipalies shall
be responsible for the municipal concerns
of the Israeli citizens residing in the
Old City Area and their local property.
c. The two sub-municipalities shall appoint
a Joint Party Committee to manage all mattersrelated
to the preservation of the unique character
of the Old City Area (its structureand modalities
are detailed in Annex Three to the Final
d. In case of a dispute between the two
sub-municipalities on matters related to
the Old City Area, the issue shall be referred
for a decision to the Joint Parity Committee.
13. The State of Palestine
shall be granted extra-territorial sovereignty
over the Haram ash-Sharif under the administration
of the al-Quds Awqaf. The present status quo
regarding the right of access and prayer for
all, will be secured.
14. The Church of the Holy
Sepulchre shall be managed by the Palestinian
sub-Municipality. The Joint Parity Committee,
shall examine the possibility of assigning
extra-territorial status to the Church of
the Holy Sepulchre.
15. Supervision of persons
and goods transiting through the "City
of Jerusalem" shall take place at the
exit points. Other security matters related
to persons, vehicles and goods suspected of
involvement in hostile activity are dealt
with in Annex Two to the Final Status Agreement.
VII: PALESTINIAN REFUGEES
1. Whereas the Palestinian
side considers that the right of the Palestinian
refugees to return to their homes is enshrined
in international law and natural justice,
it recognizes that the prerequisites of the
new era of peace and coexistence, as well
as the realities that have been created on
the ground since 1948, have rendered the implementation
of this right impracticable. The Palestinian
side, thus, declares its readiness to accept
and implement policies and measures that will
ensure, insofar as this is possible, the welfare
and well-being of these refugees.
2. Whereas the Israeli side
acknowledges the moral and material suffering
caused to the Palestinian people as a result
of the war of 1947-1949. It further acknowledges
the Palestinian refugees' right of return
to the Palestinian state and their right to
compensation and rehabilitation for moral
and material losses.
3. The parties agree on
the establishment of an International Commisssion
for Palestinian Refugees (hereinafter "the
ICPR") for the final settlement of all
aspects of the refugee issue as follows:
a. The Parties extend invitations to donor
countries to join them in the formation
of the ICPR.
b. The Parties welcome the intention of
the Government of Sweden to lead the ICPR
and to contribute financially to its activities.
c. The Government of Israel shall establish
a fund for its contribution, along with
others, to the activities of the ICPR.
d. The ICPR shall conduct all fundraising
activities and coordinate donors' involvement
in the program.
e. The ICPR shall define the criteria
for compensation accounting for:
(1) moral loss;
(2) immovable property;
(3) financial and economic support enabling
resettlement and rehabilitation of Palestinians
residing in refugee camps.
f. The ICPR shall further:
(1) adjudicate claims for material loss;
(2) prepare and develop rehabilitation
and absorption programs;
(3) establish the mechanisms and venues
for disbursing payments and compensation;
(4) oversee rehabilitation programs;
(5) explore the intentions of Palestinian
refugees on the one hand and of Arab and
other countries on the other, concerning
wishes for emigration and the possibilities
(6) explore with Arab governments hosting
refugee populations, as well as with these
refugees, venues for absorption in these
countries whenever mutually desired.
g. The ICPR shall implement all the above
according to the agreed schedule defined
in Annex Four to the Final Status Agreement.
4. The ICPR shall be guided
by the following principles in dealing with
the "refugees of 1948" and their
descendants as defined in Annex Four to the
Final Status Agreement:
a. Each refugee family shall be entitled
to compensation for moral loss to a sum
of money to be agreed upon by the ICPR.
b. Each claimant with proven immovable
property shall be compensated as per the
adjudication of the ICPR.
c. The ICPR shall provide financial and
economic support, enabling the resettlement
and rehabilitation of Palestinians residing
in refugee camps.
d. The refugees shall be entitled to financial
and economic support from the ICPR for resettlement
5. The State of Israel undertakes
to participate actively in implementing the
program for the resolution of the refugee
problem. Israel will continue to enable family
reunification and will absorb Palestinian
refugees in special defined cases, to be agreed
upon with the ICPR.
6. The Palestinian side
undertakes to participate actively in implementing
the program for the resolution of the refugee
problem. The Palestinian side shall enact
a program to encourage the rehabilitation
and resettlement of Palestinian refugees presently
resident in the West Bank and Gaza Strip,
within these areas.
7. The PLO considers the
implementation of the above a full and final
settlement of the refugee issue in all its
dimensions. It further undertakes that no
additional claims or demands arising from
this issue will be made upon the full implementation
of this Framework Agreement.
VIII: ISRAELI-PALESTINIAN STANDING COMMITTEE
1. The Parties shall establish
an Israeli-Palestinian Standing Committee
(hereafter: "IPSC"), which will
commence activities upon the signing of this
2. This IPSC shall be authorized
to deal with all matters related to the smooth
transition between the Interim Agreement and
Final Status Agreement.
3. The IPSC shall also coordinate
activities related to the implementation of
the Final Status Agreement.
IX: WATER RESOURCES
1. The Parties agree that
they possess the same natural water resources
essential for each nations livelihood and
2. Water rights and issues
are laid out in Annex Five to the Final Status
3. With a view to achieving
a comprehensive and lasting settlement of
all water problems between them, the Parties
jointly undertake to ensure that the management
and development of their water resources should
not in any way harm or imperil the water resources
of the other.
4. The Parties further agree
to the following:
a. The development of existing and new
water resources to increase availability
and minimize wastage.
b. The prevention of contamination of
c. The transfer of information and joint
research and the review of the potential
for water enhancement.
5. The Parties agree to
prepare as soon as possible, but not later
than May 5, 1999, an agreed upon coordinated
separate and joint water management plan for
the joint aquifers that will guarantee optimal
use and development of water resources for
the benefit of the Israeli and Palestinian
6. The Parties agree to
seek to extend their joint co-operation to
the Hashemite Kingdom of Jordan, in particular
with regard to the waters of the Jordan River
and the Dead Sea and to seek to promote wider
regional understanding on the exploitation
and management of water resources in the Middle
X: TIME FRAME AND IMPLEMENTATION
A. The Preparatory Period:
May 5th 1996 to May 4th 1999
1. With the signing of this
Framework Agreement and its entry into force
not later than May 5th 1996, the Preparatory
Period for Final Status shall commence. Immediately
thereafter, the Parties shall:
a. Establish the IPSC (Israeli-Palestinian
Standing Committee) along the lines laid
down in Article VIII.
b. Extend invitations to donor countries
to join the Government of Sweden and themselves
in formation of the ICPR (International
Commission for Palestinian Refugees).
The Preparatory Period shall
end not later than May 4th 1999.
2. During this period it
is agreed that the following shall be implemented:
a. The Final Status Agreement with all
Annexes will be prepared, based on the agreements
and principles laid down in this Framework
b. Consequently, and based on the mechanisms
for border delineation set out in Annex
One to the Final Status Agreement, the joint
delineation of borders and official extra-territorial
and other passages shall be finalized.
c. The Israeli-Palestinian Coordinating
Security Commission (CSC) shall be established
and commence its deliberation, not later
than May 5th 1998. The CSC shall establish
the mechanism for dealing with security
issues relating to Israeli citizens in the
State of Palestine, and Palestinian citizens
in the State of Israel.
d. The Parties shall invite the co-sponsors
to the Peace Process and other agreed upon
third parties, to establish an International
Observer Force (IOF) as agreed upon in Annex
two to the Final Status Agreement.
e. The Government of Israel shall establish
a program to encourage Israeli settlers
to resettle within Israel's sovereign territory.
Settlers wishing to take part in this program
shall be compensated by the Israeli government
before January 1st, 1999, according to guidelines
to be announced within three months of the
entry into force of this Framework Agreement.
f. The agreed upon reformed Jerusalem
Municipal System shall be inaugurated not
later than May 5th 1999.
g. Both sides shall prepare and agree
on a Jerusalem Master Plan as described
in Article VI.
h. In accordance with Article VII of this
Framework Agreement, the PLO shall establish
a program to encourage the rehabilitation
and resettlement of Palestinian refugees
presently residing in the West Bank and
Gaza Strip, within these areas.
i. The Parties shall promote the work
of the ICPR as stipulated in Article VII
to this Agreement.
j. The Parties shall prepare an agreed
upon coordinated, separate and joint water
management plan for the joint aquifers.
k. As soon as possible, but not later
than May 4th 1999, the interim period shall
come to an end and a full Final Status Agreement
shall be signed and a Peace Treaty shall
B. The Implementation Period:
May 5th 1999 to May 4th 2000
1. With the signing and
entry into force of the Israeli-Palestinian
Final Status Agreement, the implementation
of the Final Status settlement will commence.
The creation of the Independent State of Palestine
within secure and recognized borders shall
be promulgated by the PLO and its relevant
agencies. Immediately thereafter, but not
later than within two months, the Peace Treaty
shall be signed.
2. The Government of the
State of Israel shall extend immediate and
full diplomatic recognition to the State of
Palestine and to al-Quds as its capital, as
described in Article VI and Annex Three to
the Final Status Agreement.
3. The Government of the
State of Palestine shall extend immediate
and full diplomatic recognition to the State
of Israel and to Yerushalayim as its capital,
as described in Article VI and Annex Three
to the Final Status Agreement.
4. Provisions relating to
the normalization of Israeli-Palestinian relations
shall be implemented as described in Article
5. Upon entry into force
of the Israeli-Palestinian Final Status Agreement,
the withdrawal of Israeli Military and Security
Forces shall commence and the agreed security
provisions shall be implemented according
to the schedule described in Article II and
Annex Two to the Final Status Agreement.
6. Within the "City
of Jerusalem" elections for the two sub-municipalities
will be held. The two sub-municipalities shall
appoint a Joint Parity Committee for the Old
City Area (as outlined in Article VI paragraph
12 to this agreement), and a proportional
(2:1) Joint Higher Municipal Council which
will elect the Mayor of the "City of
7. The parties agree to
continue to work jointly and separatly within
the framework of the multilateral working
groups and other relevant fora towards:
a. The establishment of a Middle East
free from hostile coalitions and alliances;
b. The creation of a Middle East free
from weapons of mass destruction both conventional
and non-conventional within the context
of a comprehensive, lasting and stable settlement.
C. The Post-Implementation
Period: May 5th 2000 to May 4th 2007
1. Israeli residual forces
shall remain on Palestinian territory. The
CSC shall continue to coordinate Israeli and
Palestinian security needs.
2. Responsibility for the
security of Israeli citizens residents in
the State of Palestine, shall remain with
D. The Post-November 5th
Remaining Israeli residual
forces shall withdraw from the Palestinian
State contingent on the attainment of peace
treaties and security arrangements between
Israel and the relevant Arab parties.
International Presence in Hebron