May 31, 2019
Israel and the Palestinians: Chronology of a Two-State Solution
The idea of a two-state solution to the Israeli-Palestinian
1981 Israel unilaterally applies civilian law to the Golan
conflict developed gradually in the years after Israel
Heights, effectively annexing it; U.N. Security Council
captured the West Bank and Gaza Strip in the 1967 Arab-
Resolution 297 holds Israeli action to be invalid
Israeli war. This product highlights the evolution of this
idea. In 2002, U.S. policy became explicitly supportive of
1982 Israel finalizes return of Sinai Peninsula to Egypt
creating a Palestinian state alongside Israel. Since then,
1987 First Palestinian intifada begins
unsuccessful negotiating efforts and other developments
have led many observers to doubt the viability of a two-
1988 PLO under Yasser Arafat agrees to consider a
state solution. These doubts have grown during the Trump
solution focused on Palestinian claims to the West
Administration amid speculation that the plan the
Bank and Gaza, not all of historic Palestine; Jordan
Administration has pledged to release may use economic
gives up its claims to the West Bank to the PLO
measures to elicit Palestinian concessions on core issues of
dispute with Israelis (security, borders, settlements,
1991 Fol owing the Gulf War, the United States seeks to
Jerusalem, Palestinian refugees), without specifically
help start Arab-Israeli (including Israeli-Palestinian)
calling for an independent Palestinian state.
peace talks at the Madrid Conference
From U.N. Security Council Resolution
1993 Israel-PLO Declaration of Principles (Oslo Accord)
242 to Oslo Process (1967-1995)
signed in Washington, DC
Shortly after the 1967 Arab-Israeli war, the U.N. Security
1994 Palestinian Authority (PA) created via Gaza-Jericho
Council adopted Resolution 242, which supported future
Agreement signed by Israel and the PLO in Egypt
negotiations involving the Israeli return of captured
Israel-Jordan peace treaty
territories in exchange for peace with Arab states (the
“land-for-peace” principle). The U.S.-brokered 1978 Camp
1995 Israel-PLO Interim Agreement on the West Bank and
David Accords between Israel and Egypt had provisions
Gaza Strip (Oslo II) signed in Egypt to formalize areas
addressing Palestinian aspirations for self-rule. The
of limited PA rule, final-status negotiating period
Accords anticipated transitional Palestinian autonomy in the
begins
West Bank and Gaza accompanied by Israeli-Palestinian
Assassination of Israeli prime minister Yitzhak Rabin
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 more 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 second intifada 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 1980s and
emphasis on security measures grew—focused both on
early 1990s. 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 settlers in the West Bank and East Jerusalem 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, Golan Heights from
the basis for subsequent rounds of Israeli-Palestinian
Syria, and Gaza Strip and Sinai Peninsula from Egypt
negotiations in 2007-2008 and 2013-2014. This was the
U.N. Security Council Resolution 242
case despite the post-2000 changes mentioned above, the
emergence of other global and regional powers, and
1978 Camp David Accords
heightened political unrest in surrounding Arab states. Both
1979 Israel-Egypt peace treaty
rounds of negotiations ended without an agreement, leading
Israel and the Palestinians to pursue leverage over each
other on the ground (sometimes violently) and through
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Israel and the Palestinians: Chronology of a Two-State Solution
international politics and trade. Meanwhile, domestic
Iranian regional influence, and then using those improved
pressure mounted on Israeli and Palestinian leaders to
ties to encourage Arab states to persuade the Palestinians to
consider alternatives to a negotiated solution. Some Israelis
hazard difficult compromises.
have advocated partial annexation of Israeli-controlled
areas in the West Bank, and some Palestinians have sought
The Trump Administration reportedly has sought support
one state with equal rights for Israelis and Palestinians.
from Arab states to keep Palestinians open to a U.S.-led
Some observers have contemplated that a conflict-ending
process, despite U.S. actions that the PLO strongly opposes
agreement might not happen, thus leaving the parties
(see timeline below) and the possibility of a peace plan that
stalemated and the Palestinians with few political rights.
may not contemplate Palestinian statehood. However, it is
unclear if Arab states are willing and able to influence
2000
Camp David summit fails to reach Israel-PLO final-
Palestinian diplomatic positions decisively. To date, the
status agreement
PLO response to the Administration has been to cease
diplomatic contacts, search for other international actors to
Second Palestinian intifada begins
counterbalance or supplant the United States in its
President Bil Clinton issues parameters for bridging
traditional mediator’s role, and warn that the Palestinian
gaps in Israel-PLO final-status positions
Authority (PA) in the West Bank might stop coordinating
2002
Saudi Arabia proposes Arab Peace Initiative, setting
on security with Israel or even disband itself.
conditions for Arab-Israeli peace related to territory,
Palestinian statehood, Jerusalem, and Palestinian
2015
Congress enacts Bipartisan Congressional Trade
refugees; Arab League adopts it
Priorities and Accountability Act of 2015 (P.L. 114-
President George W. Bush makes a two-state
26), which contains a provision seeking to protect
solution official U.S. policy in connection with efforts
Israel from punitive economic measures, including in
to end Israeli-Palestinian violence and promote PA
settlements; State Department issues statement
reform efforts through Roadmap for Peace
saying that the provision’s application to settlements
runs counter to longstanding U.S. policy
2004
President Bush sends letter to Israeli Prime Minister
Ariel Sharon implying that Israel would probably keep
2016
Congress enacts Trade Facilitation and Trade
some West Bank settlements in a peace agreement
Enforcement Act of 2015 (P.L. 114-125), with a
provision similar to the one enacted in P.L. 114-26;
PLO Chairman/PA President Yasser Arafat dies and
President Obama issues a signing statement saying
Mahmoud Abbas succeeds him
that the provision’s application to settlements is not
2005
Israel withdraws troops and settlers from Gaza Strip
in line with U.S. policy
United States abstains in vote on U.N. Security
2006
Hamas wins PA legislative elections held in West
Council Resolution 2334, which holds that Israeli
Bank and Gaza, and forms PA cabinet; U.S. support
settlements are contrary to international law
for PA limited to President Mahmoud Abbas
Secretary of State John Kerry proposes six principles
2007
After armed clash with PA/Fatah forces, Hamas gains
for future Israel-PLO negotiations toward a two-state
control of Gaza Strip; Abbas appoints new PA cabinet
solution
for West Bank
2017
President Trump recognizes Jerusalem as Israel’s
2007-
Bush Administration facilitates the Annapolis talks
capital; PLO/PA cuts off diplomatic contacts with
2008
between Israel and the PLO; no agreement reached
United States
2009
Israeli Prime Minister Binyamin Netanyahu states
2018
United States opens embassy to Israel in Jerusalem,
conditional wil ingness to accept a Palestinian state
substantially reduces bilateral aid for the Palestinians
and ends contributions for U.N. Relief and Works
2011
Unrest breaks out across Arab world, including Syria
Agency for Palestine Refugees in the Near East
Palestinians unsuccessful y apply for U.N.
(UNRWA), and mandates the closure of the PLO
membership; successful y join U.N. Educational,
office in Washington, DC
Scientific, and Cultural Organization (UNESCO)
2019
United States ends bilateral aid for the Palestinians
2013-
Obama Administration facilitates Israel-PLO talks; no
and merges the U.S. consulate general in Jerusalem
2014
agreement reached
into the U.S. embassy to Israel
President Trump recognizes Golan Heights as a part
Questions About Preserving the Peace
of Israel
Process (2014-Present)
Before Israeli elections in April, Prime Minister
In this environment, the United States and a number of
Netanyahu states his intent to start annexing parts of
international actors apparently downgraded their goal from
the West Bank if he forms the next government
reaching a peace agreement imminently to preserving the
peace process until conditions for talks were more

favorable. Reflecting this objective, U.S. officials
reportedly have explored an approach—starting during the
Jim Zanotti, Specialist in Middle Eastern Affairs
Obama Administration—aimed at bringing Israel closer to
Arab states because of their common concerns about
IF11237
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Israel and the Palestinians: Chronology of a Two-State Solution


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https://crsreports.congress.gov | IF11237 · VERSION 1 · NEW

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