Following is the text of the Bush administration's draft plan
to resolve the Israel - Palestinian conflict, including reform of the
Palestinian Authority, statehood for Palestine and a negotiated settlement. The
plan is based on the road map of the Quartet, issued
September 17. This unofficial text appeared in
The New York Times. The
plan evolved against the background of US preparations for a strike against
Acronyms in the text::
"AHLC" is the Ad Hoc Liaison Committee, a seven-member
group created during the Oslo process that coordinates donor assistance;
"PLC" is the Palestinian Legislative Council; "PA"
is the Palestinian Authority;
"GOI" is the Government of Israel;
"IDF" is the Israeli Defense Forces.
The actual roadmap is still subject to negotiations. As of
present writing (November 2002) little or no progress has been made toward any
of the major goals of phase one. Fighting continues between Israelis and
Palestinians, including Palestinian attacks and Israeli incursions to catch
perpetrators. A few settlement outposts were dismantled prior to the fall of the
Israel Unity government, but they have been reoccupied for the most part.
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Elements of a Performance-Based Road Map to a Permanent Two-State Solution
to the Israeli-Palestinian Conflict
The following are elements of a performance-based plan, under the supervision
of the Quartet, with clear phases and benchmarks leading to 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. Such
a settlement, negotiated between the parties, will result in the emergence of an
independent, democratic Palestinian state living side by side in peace and
security with Israel and its other neighbors. The settlement will end the
occupation that began in 1967, based on the Madrid Conference terms of reference
and the principle of land for peace, UNSCRs 242, 338 and 1397, agreements
previously reached by the parties, and the Arab initiative proposed by Saudi
Crown Prince Abdullah and endorsed by the Arab Summit in Beirut.
Phase I: October 2002-May 2003 (Transformation/Elections)
First Stage: October-December, 2002
Quartet develops detailed roadmap, in consultation with the parties,
to be adopted at December Quartet/AHLC meeting.
Appointment of new Palestinian cabinet, establishment of empowered
Prime Minister, including any necessary Palestinian legal reforms for
PLC appoints Commission charged with drafting of Palestinian
constitution for Palestinian statehood.
PA establishes independent Election Commission. PLC reviews and
revises election law.
AHLC Ministerial launches major donor assistance effort.
Palestinian leadership issues unequivocal statement reiterating
Israel’s right to exist in peace and security and calling for an
immediate end to the armed Intifada and all acts of violence against
Israelis anywhere. All Palestinian institutions end incitement against
In coordination with Quartet, implementation of U.S. rebuilding,
training and resumed security cooperation plan in collaboration with
outside oversight board. (U.S. -Egypt-Jordan).
Palestinian security organizations are consolidated into three
services reporting to an empowered Interior Minister.
Restructured/retrained Palestinian security forces and IDF
counterparts begin phased resumption of security cooperation and other
undertakings as agreed in the Tenet work plan, including regular
senior-level meetings, with the participation of U.S. security
GOI facilitates travel of Palestinian officials for PLC sessions,
internationally supervised security retraining, and other PA business
GOI implements recommendations of the Bertini report to improve
humanitarian conditions, including lifting curfews and easing movement
between Palestinian areas.
GOI ends actions undermining trust, including attacks in civilian
areas, and confiscation/demolition of Palestinian homes/property,
deportations, as a punitive measure or to facilitate Israeli
GOI immediately resumes monthly revenue clearance process in
accordance with agreed transparency monitoring mechanism. GOI transfers
all arrears of withheld revenues to Palestinian Ministry of Finance by
end of December 2002, according to specific timeline.
Arab states move decisively to cut off public/private funding of
extremist groups, channel financial support for Palestinians through
Palestinian Ministry of Finance.
GOI dismantles settlement outposts erected since establishment of
the present Israeli government and in contravention of current Israeli
Second Stage: January-May 2003
Continued Palestinian political reform to ensure powers of PLC,
Prime Minister, and Cabinet.
Independent Commission circulates draft Palestinian constitution,
based on strong parliamentary democracy, for public comment/debate.
Devolution of power to local authorities through revised
Quartet monitoring mechanism established.
Palestinian performance on agreed judicial, administrative, and
economic benchmarks, as determined by Task Force.
As comprehensive security performance moves forward, IDF withdraws
progressively from areas occupied since September 28, 2000. Withdrawal
to be completed before holding of Palestinian elections. Palestinian
security forces redeploy to areas vacated by IDF.
GOI facilitates Task Force election assistance, registration of
voters, movement of candidates and voting officials.
GOI reopens East Jerusalem Chamber of Commerce and other closed
Palestinian economic institutions in East Jerusalem.
Constitution drafting Commission proposes draft document for
submission after elections to new PLC for approval.
Palestinians and Israelis conclude a new security agreement building
upon Tenet work plan, including an effective security mechanism and an
end to violence, terrorism, and incitement implemented through a
restructured and effective Palestinian security service.
GOI freezes all settlement activity consistent with the Mitchell
report, including natural growth of settlements.
Palestinians hold free, open, and fair elections for PLC.
Regional support: Upon completion of security steps and IDF
withdrawal to September 28, 2000 positions, Egypt and Jordan return
ambassadors to Israel.
Phase II: June 2003-December 2003 (Transition)
Progress into Phase II will be based upon the judgment of the Quartet,
facilitated by establishment of a permanent monitoring mechanism on the ground,
whether conditions are appropriate to move on -- taking into account performance
of all parties and Quartet monitoring. Phase II starts after Palestinian
elections and ends with possible creation of a Palestinian state with
provisional borders by end of 2003. · International Conference: Convened by the
Quartet, in agreement with the parties, immediately after the successful
conclusion of Palestinian elections to support Palestinian economic recovery and
launch negotiations between Israelis and Palestinians on the possibility of a
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,
Revival of “multilateral talks” (regional water, environmental,
economic development, refugee, arms control issues).
Newly elected PLC finalizes and approves new constitution for
democratic, independent Palestinian state.
Continued implementation of security cooperation, complete
collection of illegal weapons, disarm militant groups, according to
Phase I security agreement.
Israeli-Palestinian negotiations aimed at creation of a state with
provisional borders. Implementation of prior agreements, to enhance
maximum territorial contiguity.
Conclusion of transitional understanding and creation of state with
provisional borders by end of 2003. Enhanced international role in
Further action on settlements simultaneous with establishment of
Palestinian state with provisional borders.
Phase III: 2004-2005 (Statehood)
Progress into Phase III, based on judgment of Quartet, taking into account
actions of all parties and Quartet monitoring.
Second International Conference: Convened by the Quartet, with
agreement of the parties, at beginning of 2004 to endorse agreement
reached on state with provisional borders and to launch negotiations
between Israel and Palestine toward a final, permanent status resolution
in 2005, including on borders, Jerusalem, refugees and settlements; and,
to support progress toward a comprehensive Middle East settlement
between Israel and Lebanon and Syria, to be achieved as soon as
Continued comprehensive, effective progress on the reform agenda
laid out by the Task Force in preparation for final status agreement.
Continued sustained, effective security cooperation based on
security agreements reached by end of Phase I and other prior
Arab state acceptance of normal relations with Israel and security
for all the states of the region, consistent with Beirut Arab Summit
(Distributed by the Office of International Information Programs, U.S.
Department of State. Web site: http://usinfo.state.gov)