U.S. Road Map

Elements of Performance-Based Road Map To "Promote two-State Solution to the Israeli-Palestinian Conflict "

22/12/2002

The following are elements of a performance-based and goal-driven road map, with clear phases, targets, and benchmarks aiming at progress 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 Israeli-Palestinian conflict by 2005, as presented in President Bush's speech of 14 June, and welcomed by the EU, Russia and the UN in the 16 July and 17 September Quartet Ministerial statements. 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 Israeli-Palestinian conflict, and end the occupation that began in 1967, banned on the Madrid Conference terms of reference and the principle of land for peace. UNSCO 242, 338, and 1397, and agreements previously reached by the parties. The settlements will also take into special consideration the continuing importance of the initiative of Saudi Arabia, endowed at the Arab League Beirut Summit, which is a vita part of the peace on all tracks. including the Syrian-Israeli and Lebanese-Israeli tracks.

A two state solution to the Israeli-Palestinian conflict will only be achieved through an end to violence and terrorism, and a clear unambiguous acceptance by both parties of the goal of a negotiated settlement as described above. The Quartet will assist and facilitate implementation of the plan, starting in phase I, including direct discussions between the parties as required. The plan established 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, and vice versa. 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 1: PRESENT TO MAY 2003
ENDING TERROR AND VIOLENCE/NORMALIZING
PALESTINIAN LIFE/BUILDING PALESTINIAN INSTITUTIONS

In Phase I, the Palestinians immediately implement an
unconditional cessation of violence according to the- steps outlined below. 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. The Palestinian Authority undertakes comprehensive political reform in preparation for statehood, including drafting a Palestinian constitution, and free, fair, and open election upon that basis [EU to delete: for a new PLC.] Israel takes all possible 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 1:

• 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. GOI takes no actions undermining trust, including deportations,[ EU/UN to add: ends protective security operations and] attacks on civilians or in densely-populated civilian areas; confiscation and/or demolition of Palestinian homes and property, as a punitive measure or to facilitate Israeli construction; and destruction of Palestinian civil institutions and infrastructure. All Israeli official institutions and incitement against Palestinians.

Humanitarian Response

• GOI takes measures to improve the humanitarian situation, including implementing recommendations of the Bertini report to improve humanitarian conditions, lifting curfew 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 continued donor support to the reform effort.

• GOI and PA continue revenue clearance process and transfer of funds in accordance with agreed, transparent monitoring mechanism.

Civil Society

• Continued donor support for people to people programs and civil society initiatives.

Settlements

• GOI immediately dismantled settlement outposts erected since March 2001.

• Russia/UN/EU to delete: Following a comprehensive crossfire, GOI freezes all settlement activity, consistent with the Mitchell Committee report (including natural growth of settlements) giving priority to projects that threaten the contiguity of Palestinian populated areas, including the area surrounding Jerusalem.

Palestinian Institution-Building

• Credible process for drafting of constitution for Palestinian statehood. As soon as ready. Constitutional Committee circulates draft Palestinian constitution, based on strong parliamentary democracy and cabinet with empowered prime minister, for public comment/debate. Constitutional Commission proposes draft document for submission after elections for approval by appropriate Palestinian institutions.

• GOI fully facilitates travel of Palestinian officials for PLO and Cabinet sessions, internationally supervised security retraining, electoral and other reform activity, and other supportive measures related to the reform efforts.

• Appointment of Palestinian ministers empowered to undertake fundamental reform. Completion of further stops to achieve genuine separation of powers, including any necessary Palestinian legal reforms for this purpose.

• Interim prime minister or cabinet with empowered executive authority/decision-making body.

• Establishment of independent Palestinian election commission. PLO 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, (U.S. to add: and based upon the above measures), Palestinians hold free, open, and fair elections (EU to delete: for PLC).

• GOI facilitates Task Force election assistance, registration of voters, movement of candidate and voting officials.

• GOI re-opens 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.

Security :

§ 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.

§ Palestinian Authority security forces begin sustained, targeted, and effective operations aimed at dismantling terrorist capabilities and infrastructure.

§ Relying on existing mechanisms and on-the-ground resources, Quartet begins informal monitoring and consults 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) [EU to add: and with Quartet support] or [and with EU support].

- 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 offpublic and private funding of 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 28,200. Palestinian security forces redeploy to areas vacated by IDF.

PHASE II: JUNE 2003 - DECEMBER 2003 TRANSITION

In the second phase, efforts are focused on the option of creating a Palestinian state with provisional borders, based on the new constitution, as a way station to a permanent status settlement. 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 all practices. Furthering and sustaining efforts to normalize Palestinian lives and build Palestinian institutions, Phase II starts after Palestinian elections and ends with possible creation of a 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 a 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.
- Other pre-intifada Arab links to Israel restored (trade offices, etc.).

                              -   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 prime minister established.

• Continued comprehensive security performance, including effective

security cooperation on the bases laid out in Phase 1.

§ Creation of a 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 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 (U.S.: to refer to legal advisor).

PHASE III: 2004-2005
PERMANENT STATUS AGREEMENT
AND
END OF ISRAELI-PALESTINIAN CONFLICT

Progress into Phase III, based on consensus judgment of Quartet, and taking into account actions of all 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 by 2005.

• Second International Conference: Convened by Quartet, in consultation with the parties, at beginning of 2004 to endorse agreement reached on 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 by 2005, 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 1.

• 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 Israeli-Palestinian conflict in 2005, through a settlement negotiated between the parties.