A Performance-Based Road Map to a Permanent Two-State
Solution to the Israeli-Palestinian Conflict
Draft December 20, 2002
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
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 Israeli’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 on 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
ENDING TERROR AND VIOLENCE, NORMALIZING PALESTINIAN LIFE,
AND BUILDING PALESTINIAN INSTITUTIONS
PRESENT TO MAY 2003
In Phase I. the Palestinians immediately undertake and 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
commitments 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 Palestinian 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
- 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
- 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, 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 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
- 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
- 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 building proposes draft document for
submission after elections for approval by appropriate Palestinian
- 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 or independent Palestinian election commission. PLC
reviews and revises elections 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, multiparty 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 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 areas, in accordance with agreed, transparent monitoring
- 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
- 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,
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.
- 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
- 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 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.
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
- 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 basis laid out in Phase I.
- International efforts to facilitate reform and stabilize Palestinian
institutions and the Palestinian economic, in preparation for final
- 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
- Arab state acceptance of full normal relations with Israel and
security for all the states of the region in the context of a
compressive Arab-Israeli peace.