A Performance-Based Road Map
to a Permanent Two-State Solution to the Israeli-Palestinian Conflict
Released April 30, 2003
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 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 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
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
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
At the outset of Phase I:
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, 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 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, etc.).
- Revival of multilateral engagement on issues including regional water
resources, environment, economic development, refugees, and arms control
- 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 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
- 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
Released on April 30, 2003