The Middle East Road Map
(April 30, 2003)
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
, and welcomed by the EU, Russia and the UN in the 16 July
and 17 September Quartet Ministerial
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
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
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
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
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
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
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
and Cabinet sessions,
internationally supervised security retraining, electoral and other
reform activity, and other supportive measures related to the reform
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.
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
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 of settlements).
Phase II: Transition -- June
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
- 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 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
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
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.
Sources: U.S. Department of State