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Updated June 30, 2020 and the : Chronology of a Two-State Solution

The idea of a two-state solution to the -Palestinian 1979 Israel- peace treaty conflict developed gradually in the years after Israel captured the and in the 1967 Arab- 1981 Israel unilaterally applies civilian law to the Israeli war. This product highlights the evolution of this Heights, effectively annexing it; U.N. Security Council idea. In 2002, U.S. policy became explicitly supportive of Resolution 297 holds Israeli action to be invalid creating a Palestinian state alongside Israel. Since then, 1982 Israel finalizes return of to Egypt unsuccessful negotiating efforts and other developments have led many observers to doubt the viability of a two- 1987 First Palestinian intifada begins state solution. Analysts debate whether the Trump Administration’s 2020 release of the Administration’s 1988 PLO under agrees to consider a Vision for Peace will help or hinder the parties in resolving solution focused on Palestinian claims to the West core issues of dispute (security, , settlements, Bank and Gaza, not all of historic ; , Palestinian ). The plan sets some gives its claims to the West Bank to the PLO arguably difficult preconditions for a future Palestinian 1991 Following the , the helps start state, and could permit Israeli of some West Arab-Israeli (including Israeli-Palestinian) peace talks at Bank areas—primarily Israeli settlements and the Jordan the Conference Valley. 1993 Israel-PLO Declaration of Principles ( Accord) From U.N. Security Council Resolution signed in Washington, DC 242 to Oslo Process (1967-1995) 1994 Palestinian Authority (PA) created via Gaza- Shortly after the 1967 Arab-Israeli War, the U.N. Security Agreement signed by Israel and the PLO in Egypt Council adopted Resolution 242, which supported future negotiations involving the Israeli return of captured Israel-Jordan peace treaty in exchange for peace with Arab states (the 1995 Israel-PLO Interim Agreement on the West Bank and “land-for-peace” principle). The U.S.-brokered 1978 Camp Gaza Strip (Oslo II) signed in Egypt to formalize areas Accords between Israel and Egypt had provisions of limited PA rule; final-status negotiating period addressing Palestinian aspirations for self-rule. The begins Accords anticipated transitional Palestinian autonomy in the West Bank and Gaza accompanied by Israeli-Palestinian of Israeli prime minister peace negotiations. Negotiations Amid Changing Political Initially, the prevailing U.S. and Israeli view was that Realities (1995-2014) autonomy would not necessarily lead to statehood. Yet, After the initial Oslo process ended in 2000 without a peace U.S. officials began seriously contemplating that agreement, Israeli public opinion grew wary of diplomatic peace talks could lead to a Palestinian state after Yasser compromise, especially with a and attacks Arafat’s Palestine Liberation Organization (PLO) signaled inside Israel from the West Bank and Gaza. Israel’s its willingness to negotiate with Israel in the late and emphasis on security measures grew—focused both on early . That timeframe coincided with the first protection (building walls and fences) and prevention Palestinian intifada (or uprising), which raised widespread (expanding Israeli military and intelligence operations in concern in Israel that political control over the West Bank the West Bank and around Gaza)—and contributed to and Gaza was unsustainable. Political space opened for a Palestinian economic difficulties. Additionally, the numbers diplomatic process anticipating territorially contiguous of Israeli in the West Bank and had Israeli and Palestinian states that would share close steadily increased over time, making the prospect of cleanly commercial ties, opening the way to the Oslo agreements of separating Israeli and Palestinian populations more 1993-1995 (see timeline below) and the accompanying complicated and politically charged. peace process. The principle of a two-state solution mediated by the 1967 Arab-Israeli War: Israel captures West Bank (including United States and supported by neighboring Arab states was East Jerusalem) from Jordan, from the basis for subsequent rounds of Israeli-Palestinian , and Gaza Strip and Sinai Peninsula from Egypt negotiations in 2007-2008 and 2013-2014. This was the case despite the post-2000 changes mentioned above, the U.N. Security Council Resolution 242 emergence of other global and regional powers, and 1978 Accords heightened political unrest in surrounding Arab states. Both rounds of negotiations ended without an agreement, leading Israel and the Palestinians to pursue leverage over each https://crsreports.congress.gov Israel and the Palestinians: Chronology of a Two-State Solution other on the ground (sometimes violently) and through then using those improved ties to encourage Arab states to international politics and trade. Meanwhile, domestic persuade the Palestinians to accept less domestically pressure mounted on Israeli and Palestinian leaders to popular outcomes. consider alternatives to a negotiated solution. Some have advocated partial annexation of Israeli-controlled The Trump Administration has taken a number of actions areas in the West Bank, and some Palestinians have sought that the PLO strongly opposes, including the release of its one state with equal rights for Israelis and Palestinians. Vision for Peace (see timeline below). In response to U.S. Some observers have contemplated that a conflict-ending actions and in anticipation of possible Israeli annexation of agreement might not happen, thus leaving the parties West Bank areas, the PLO/Palestinian Authority (PA) has stalemated and the Palestinians with few political rights. ceased diplomatic contacts with the United States, denounced U.S.-Israeli moves as violating the Oslo fails to reach Israel-PLO final- agreements, sought help from other international actors on status agreement the peace process, ended most security coordination with Israel in the West Bank, and warned of disbanding the PA. Second Palestinian intifada begins President Clinton issues parameters for bridging 2015 Congress enacts Bipartisan Congressional Trade gaps in Israel-PLO final-status positions Priorities and Act of 2015 (P.L. 114- 2002 proposes , setting 26), which contains a provision seeking to protect conditions for Arab-Israeli peace related to , Israel from punitive economic measures, including in Palestinian statehood, Jerusalem, and Palestinian settlements; State Department issues statement refugees; adopts it saying that the provision’s application to settlements President George W. Bush makes a two-state runs counter to long-standing U.S. policy solution official U.S. policy in connection with efforts 2016 Congress enacts Trade Facilitation and Trade to end Israeli-Palestinian violence and promote PA Enforcement Act of 2015 (P.L. 114-125), with a reform efforts through Roadmap for Peace provision similar to the one enacted in P.L. 114-26; President Obama issues a signing statement saying 2004 President Bush sends letter to Israeli Prime Minister that the provision’s application to settlements is not Sharon implying that Israel would probably keep in line with U.S. policy some West Bank settlements in a peace agreement PLO Chairman/PA President Yasser Arafat dies and United States abstains in vote on U.N. Security Council Resolution 2334, which holds that Israeli Mahmoud succeeds him settlements are contrary to 2005 Israel withdraws troops and settlers from Gaza Strip Secretary of State proposes six principles 2006 wins PA legislative elections held in West for future negotiations toward a two-state solution Bank and Gaza, and forms PA ; U.S. support 2017 President Trump recognizes Jerusalem as Israel’s for PA limited to President capital; PLO/PA cuts off diplomatic contacts with 2007 After armed clash with PA/ forces, Hamas gains United States control of Gaza Strip; Abbas appoints new PA cabinet 2018 United States opens embassy to Israel in Jerusalem, for West Bank substantially reduces bilateral aid for the Palestinians, 2007- Bush Administration facilitates the Annapolis talks ends contributions for U.N. Relief and Works 2008 between Israel and the PLO; no agreement reached Agency for Palestine Refugees in the (UNRWA), and mandates the closure of the PLO 2009 Israeli Prime Minister Binyamin Netanyahu states office in Washington, DC conditional willingness to accept a Palestinian state 2019 President Trump recognizes Golan Heights as a part 2011 Unrest breaks out across Arab , including Syria of Israel Palestinians unsuccessfully apply for U.N. Secretary of State Pompeo announces, as a membership; successfully join U.N. Educational, contrast with some past Administrations’ statements Scientific, and Cultural Organization (UNESCO) or legal findings, that Israeli West Bank settlements are “not per se inconsistent with international law” 2013- Obama Administration facilitates Israel-PLO talks; no 2014 agreement reached 2020 President Trump releases plan entitled Vision for Peace, featuring terms generally viewed as favorable Challenges to the Peace Process (2014- for Israel; the PLO/PA rejects the plan Present) New Netanyahu-led government in Israel has a In this environment, the United States and a number of mandate to annex some parts of the West Bank after international actors apparently downgraded their goal from July 1 in coordination with U.S. officials reaching a peace agreement imminently to preserving the peace process until conditions for talks were more favorable. Reflecting this objective, U.S. officials focused on bringing Israel closer to Arab states because of their Jim Zanotti, Specialist in Middle Eastern Affairs common concerns about Iranian regional influence, and IF11237

https://crsreports.congress.gov Israel and the Palestinians: Chronology of a Two-State Solution

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