15 September 1992
Israel's Interim Self Government Proposals to the Palestinians
In its basic policy guidelines, the new Israeli government declared that
it is determined to promote the peace-making efforts with its neighbors,
and will leave no stone unturned in its pursuit of a solution to the
Israeli-Arab conflict. The new Prime Minister, Mr. Yitzhak Rabin,
announced that he intends to carry out intensive and prompt negotiations
within the Madrid conference framework, in order to achieve this goal.
On August 24, the sixth round of bilateral talks between Israel and the
Arabs began. It is scheduled to continue until September 24.
The Israeli negotiating team came to this round of talks with a double
mandate continuity with regard to framework, and innovation
concerning content:
Continuity: With regard to the composition, framework and goal of the
talks, Israel continues to remain obligated to the Madrid formula,
which was developed through months of intensive diplomacy and was
achieved as the result of concessions and compromises by all parties.
Innovation: In order to give new impetus to the talks and to expedite
early agreement, Israel has presented a series of innovative and
detailed proposals and negotiating papers, which are presented below.
The negotiations between the Palestinians and Israel are meant to
achieve an agreement on Interim Self Government Arrangements (ISGA) for
the Palestinian population in the territories. Since the beginning of
the talks in October, Israel has presented its Palestinian counterparts
with a number of detailed proposals and offers in an effort to
facilitate an agreement on the ISGA. These proposals have been
wide-ranging and forthcoming, and demonstrate Israel's sincere and
earnest desire to find a solution to this aspect of the Arab-Israeli
conflict.
The following paper is an overview of the self government proposals
presented by Israel's negotiators to the Palestinians, and which are
presently on the table. Israel believes that these proposals can serve
as an appropriate starting point for the serious negotiations which lie
ahead.
15 September, 1992
Israel's Proposals Regarding
the Concept of Interim Self Government Arrangements
for the Palestinians of the Territories
- The Goal of the Negotiations:
The negotiations are held on the basis of the invitation to the Madrid
conference. That framework stipulated that the goal of these talks
between Israel and the Palestinians of the territories is the
establishment of Interim Self Government Arrangements for a period of
five years. Beginning the third year, negotiations on the permanent
status will take place on the basis of UN Resolutions 242 and 338.
- The Principle of Interim Arrangements:
The basic idea of the interim arrangements period is to create a new
atmosphere for the future permanent status negotiations, while not
prejudging or predetermining their outcome. Israel is offering
arrangements which provide the Palestinians in the territories with a
significant improvement in their daily life conditions.
- Confidence Building Measures:
In preparation for the opening of the present round of talks, the
Israeli government decided upon a number of significant confidence
building measures meant to improve the atmosphere towards the renewal of
the peace negotiations. These steps include the cancellation of
deportation orders, the release of 800 Palestinian inmates, easing
travel restrictions, and reopening structures and roads sealed for
security reasons.
- The Palestinian Administrative Council (PAC):
Israel envisions the establishment of an organ to administer the ISGA.
The proposed body, a Palestinian Administrative Council, will be
assigned agreed powers and responsibilities to perform its duties and to
administer the affairs of the Palestinians. Israel proposes that the PAC
be freely elected by the Palestinians in the territories, from among the
Palestinians in the territories.
- The Structure and Jurisdiction of the PAC:
Israel has proposed that the Palestinian Administrative Council be a
single administrative-functional body comprised of 15 members, in
accordance with the 15 spheres of operation that will be administered by
it. The jurisdiction of the PAC will be powers and responsibilities
oriented. While the territorial/geographic aspects are reserved for the
future permanent status negotiations, the PAC will deal with agreed
relevant aspects of infrastructure.
- Spheres of Operation:
Israel envisions the following 15 spheres to be administered by the PAC:
- Administration of justice
- Administration of personnel matters
- Agriculture
- Ecology;
- Education and Culture;
- Finance, Budget and Taxation;
- Health;
- Industry and Commerce;
- Labor;
- Local police;
- Local transportation and Communication;
- Municipal affairs;
- Religious affairs;
- Social welfare;
- Tourism.
Together, these 15 spheres encompass nearly all aspects of the
Palestinians' daily life. Issues relating to security, foreign
relations, Israelis and vital Israeli needs in the territories will
remain in Israel's hands in the framework of residual powers.
- The Powers and Responsibilities of the PAC:
The council, as an administrative-functional body, will wield executive
general powers within its spheres of operation. These include the power
to promulgate regulations and to exercise general executive powers.
- Administrative Council Elections:
Israel proposes that the PAC be freely elected by the Palestinians in
the territories, from among the Palestinians in the territories. The
elections will be free, based upon the preservation of the right of free
assembly, free expression and secret ballot, while providing appropriate
means to prevent disruption and disorder. Election modalities could be
discussed as soon as an understanding is reached on the principles of
the PAC.
- Cooperation and Coordination:
In its proposals, Israel envisions the establishment of mechanisms for
cooperation and coordination between the PAC and organs of the Israeli
government during the interim period. Some spheres of operation
inherently affect all parties. For example, the movement of persons and
goods between the territories, Israel and Jordan, or the use of common
infrastructures, necessitates coordination and cooperation mechanisms.
This coordination and cooperation is not meant to derogate from the
agreed powers of the PAC, but rather to enable a smooth operation of the
ISGA, and reduce possible friction.
- Jordanian Related Issues:
The ties between Jordan and the Palestinians of the territories, and
Jordanian involvement in some aspects of the daily life there, call for
the participation of Jordan in the Interim Arrangements in a variety of
areas, such as economy, monetary issues, religious affairs and other
aspects.
- Liaison and Dispute Resolution Mechanisms:
The success of the ISGA will, in a large sense, depend upon the ability
to effectively resolve issues and disputes as they arise. Israel
proposes a multi-level system of liaison mechanisms, including the
establishment of a High Liaison and Coordinating Committee composed of
Israel, Palestinians and Jordan, and additional liaison committees
within the various spheres of operation.
- Timetables and Target Dates:
Once there is agreement on the PAC concept, Israel suggests that
negotiations on election modalities could be concluded by December 1992,
and negotiations on PAC powers and responsibilities by February 1993.
Elections could then take place in April-May 1993.
- Establishing Negotiating Committees:
Israel has proposed the establishment of joint working groups in order
to deal more effectively with the details of specific issues. The
convening of working groups could take place even while other matters
are being discussed in the plenary. Access to relevant information and
public records will be provided by Israel as is appropriate to the
context of the negotiations, and implementation of the agreement.
- Enhancing the Negotiations:
Israel has suggested that the talks be conducted as continuously and as
uninterruptedly as is feasible, so that agreement is reached as soon as
possible. The present round of talks is therefore over a month long, in
order to facilitate early progress.