Update: Hopes and Fears Road Map Update Guide & Revised Index

(State Department released text, April 30 2003)

The U.S. State Department April 30 released the text of the "roadmap" to a permanent solution to the Israeli-Palestinian conflict. The roadmap specifies the steps for the two parties to take to reach a settlement, and a timeline for doing so, under the auspices of the Quartet -- the United States, the European Union, the United Nations, and Russia.

Following is the text of the roadmap:

Overview questions:

  • Did you manage to create a Timeline, or a sequence?
  • Which section has the longest text?
  • Which section has the most complex requirements?
  • Where are there overlaps, or contradictions, within the text?
  • Which are the points that Israel finds problematic?
  • Which are the points that the Palestinians find problematic?
  • What are the structural and instrumental problems of the document?

(begin text)

Office of the Spokesman
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.

Paragraph #1


Create a parallel table for goals, timeline, target dates, benchmarks for each party and fill it in as you go through.

The goal

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.

Paragraph #2

Begin here for objectives to check out in the document.










Role of the Quartet


Note on the timeline

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. Paragraph #3

How many times do you find the term, "occupation"? What are its implications?


The Saudi initiative also refers to non-binding UN GAR on Refugees #194
European Union recommendation.

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.

Paragraph #4





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. Paragraph #1

Separate out the points for Palestinians and Israelis, plus shared obligations.

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 Israel.

Paragraph #2

Israel wants this point including "as a Jewish state", to balance the definition of a Palestinian state.
Phase I doesn't go forward without all these points – how will it jump start in the present circumstances?

  • 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.

Paragraph #3

This is also a "sine qua non" – for the Israeli government. Is it possible now? Why / why not? How? 



Read to the end!


  • 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.

Paragraph #4

Implementation of statement in I. #2. Is this possible now?How?/Why not?

Note: "anywhere". What have the P.A. & Palestinian terror factions said about this – and what did Amnesty say?

  • 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.

Paragraph #5

Same continued.

Abu Mazen relates to the first part of para #4 and the second part of para #5 in his speech of 30th April (CNN) – what is missing from the speech?

  • 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.

Paragraph #6


The details of the Tenet work plan relating to settlements do not appear here; check later in the document for more; check the Tenet 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.

Paragraph #7

What is informal monitoring and how will it work, what does it portend?
Is this internationalization of an agreement and what does Israel say?

  • 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, comprehensive cease-fire.
    • 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.

Paragraph #10

What will make security cooperation successful this time round?

  • Arab states cut off public and private funding and all other forms of support for groups supporting and engaging in violence and terror.

Paragraph #11

Crucial point. Which states? How is this envisaged?

  • All donors providing budgetary support for the Palestinians channel these funds through the Palestinian Ministry of Finance's Single Treasury Account.

Paragraph #12

Addressing corruption, claims that EU funds were diverted. Check out the allegations elsewhere

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.

Paragraph #13

What does progressively mean and how is security performance assessed – and by whom?
What are the Palestinian security forces committed to doing?


  • 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.

Paragraph #14




  • Appointment of interim prime minister or cabinet with empowered executive authority/decision-making body.
  • 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.

Paragraph #16

What is the previous record on this and why is it therefore such an important issue?

  • 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.

Paragraph #17

Two important issues of empowerment and the negation of an executive Presidency. Why is this so important?
Will it happen?

  • Establishment of independent Palestinian election commission. PLC reviews and revises election law.

Paragraph #18

Presumably before the elections mentioned in para #14.

  • Palestinian performance on judicial, administrative, and economic benchmarks, as established by the International Task Force on Palestinian Reform.

Paragraph #19

What is the previous record here and why is it so important? How is performance assessed?

  • 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 fair elections.

Paragraph #20

Presumably before the elections mentioned in paragraph #14.
International supervision of elections is common: find recent examples and discuss.

  • GOI facilitates Task Force election assistance, registration of voters, movement of candidates and voting officials. Support for NGOs involved in the election process.

Paragraph #21

Why is Israel's role in facilitating Palestinian elections so important? What is the previous record?

  • 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 parties.

Paragraph #22

What is Israel's current position on these institutions? Are there other views?
What "prior agreements" were there under Oslo and the Interim Agreement process?


  • 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.

Paragraph #23

Bertini Report

What is the previous record on movement of people and access of humanitarian personnel – according to both sides? What problems were encountered on both sides?
How can it work this time around?

  • 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.

Paragraph #24

Is there a demand to recover previous monies, indict corrupt officials? Why was it necessary to enact a moratorium and start afresh?

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


  • Continued donor support, including increased funding through PVOs/NGOs, for people to people programs, private sector development and civil society initiatives.

Paragraph #26

Something relating to the quality of peace; give examples in Israel and outside.


  • GOI immediately dismantles settlement outposts erected since March 2001.

Paragraph #27

Central issue, see earlier reference. How will it be enforced in Israel?

  • Consistent with the Mitchell Report, GOI freezes all settlement activity (including natural growth of settlements).

Paragraph #28

Same question.
Why does Israel feel that freezing natural growth is unfair?


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.

Paragraph #1

Find discussion of this goal in the article by Professor Galia Golan, Yossi Beilin and also other critical viewpoints.

The carrot? Why are the pre-conditions necessary and what would happen if they were not implemented?
Discuss Palestinian views that claim it is too long to wait for this, that it is not enough.

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.

Paragraph #2

The Quartet as arbiter; they do not agree on many points; there is presumably a veto mechanism.

  • Does this mean democratic structures must be in place before the Elections – or that the Elections will be followed by a grace period before/during Phase II? Check back.
  • It is already 2003 and Phase I has yet to start. Check this along the timeline and see what adjustments will be needed all along the line.
  • 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.

Paragraph #3

Idea of a second Madrid Conference (Spanish initiative) and Israel's reservations about internationalization of the process of creating a Palestinian state and fostering all the Peace Process (Arab demand, too).

    • 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.

Paragraph #4

Why is Israel reticent to take the Israeli-Palestinian process to an international forum, at the same time as other tracks?

    • 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 issues.

Paragraph #6

Are all the sides ready at this point to resume interrupted negotiations?
Is the refugee issue to be raised in Phase II or at Final Status stage (=Phase III)?

  • 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.

Paragraph #7

Place on the timetable.

  • Empowered reform cabinet with office of prime minister formally established, consistent with draft constitution.

Paragraph #8

Find parallel provisions in Phase I and note the difference.

  • 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.

Paragraph #10

One main purpose of the conference (II.#3-4). Same questions

Is this a return to Oslo provision? Take a map to see how maximal territorial contiguity works out and what it means. Example Map 

  • Enhanced international role in monitoring transition, with the active, sustained, and operational support of the Quartet.

Paragraph #11

The tie-in between the Quartet, international supervision and the state-to-be.

  • Quartet members promote international recognition of Palestinian state, including possible UN membership.

Paragraph #12

This is during Phase II.




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. Where will this come in view of the late start, mid-2003?

Paragraph #1

Will the Quartet agree on assessment?
Mark the objectives and the agreement on the timeline as they are, and as a late start implies.What are the chances of meeting this timetable?

  • 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.
Paragraph #2

From an agreement, the state-to-be is only now to be endorsed at a special international conference.

Mark the issues for permanent status negotiation and compare with earlier references.
Separation of Lebanon and Syria as issues.
Why has Israel not succeeded in signing a peace treaty with Lebanon?
What are the issues between Israel and Syria?

  • 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 agreement.

Paragraph #5

Check back and see what is supposed to have been achieved in I. and II, that should not still be necessary in III.

  • 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.

Paragraph #6


Refugee Maps 
Arab Refugees 1948
Jewish Refugees 1948-72

Jerusalem Map
Camp David II - July 2000

Issues of Jerusalem, borders, refugees – find viewpoints and analysis in the articles.
Is the vision a feasible goal? Does this process facilitate it?

  • 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.

Paragraph #7

Name the Arab states that are not mentioned as parties to peace-making and say which are more likely to comply, which are opposed to Israel's existence.

(end text)

(Distributed by the Office of International Information Programs, U.S. Department of State. Web site: http://usinfo.state.gov)



Please see the beginning of the document for Overview questions.






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05 Jul 2007 / 19 Tamuz 5767 0