The following is the text of the ‘Road Map’ created by the Quartet (United
States, United Nations, European Union, and Russia) and presented to Israel
and the Palestinian Authority on Wednesday, 30 April 2003
A Performance-Based Roadmap to a Permanent Two-State Solution to the
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 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 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
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 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 Mitchell report.
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
- 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.
All official Israeli institutions end incitement against Palestinians.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
- 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 and corruption.
- 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.
- 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,
- 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 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 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, 2000. Palestinian
security forces redeploy to areas vacated by IDF.Palestinian Institution-Building
- 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 committee proposes draft document for
submission after elections for approval by appropriate Palestinian institutions.
- Appointment of interim prime minister or cabinet with empowered executive
- 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 of independent Palestinian election commission. PLC reviews
and revises election law.
- Palestinian performance on judicial, administrative, and economic
benchmarks, as established by the International Task Force on Palestinian
- 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, multi-party process, Palestinians hold free, open, and
- GOI facilitates Task Force election assistance, registration of voters,
movement of candidates and voting officials. Support for NGOs involved in the
- 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
- 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 arrears, 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.Settlements
- 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
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
- 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
- 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.
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
- Arab state acceptance of full normal relations with Israel and security for
all the states of the region in the context of a comprehensive Arab-Israeli peace.