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
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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.
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