US Letter of Assurances to Jordan, [18 October 1991]

Jordan's decision to attend a peace conference to launch direct bilateral and multilateral negotiations with Israel represents an important step in pursuit of a comprehensive settlement of the Arab-Israeli conflict. Jordan has long been in the forefront of those in the region who have worked hard to achieve a peaceful negotiated settlement of the Arab-Israeli dispute. Jordan has historic interests in the Arab-Israeli issue which give it a special role to play.

In the context of the launching of a peace conference and direct negotiations, I want to respond to your request for certain assurances related to this process. These assurances constitute United States understandings and intentions concerning the conference and ensuing negotiations.

These assurances are consistent with United States policy and do not undermine or contradict the framework we have created for convening a peace conference. Moreover, there will be no assurances provided to one side that are not known to all the others. By this we can foster a sense of confidence and minimize chances for misunderstandings.

As President Bush stated in his March 6, 1991, address to Congress, the United States continues to believe firmly that a comprehensive peace must be grounded in United Nations Security Council Resolutions 242 and 338 and the principle of territory for peace. Such an outcome must also provide for security and recognition for all states in the region, including Israel, and for legitimate political rights of the Palestinian people. Anything else, the President noted, would fail the twin tests of fairness and security.

As you are aware, the peace conference is designed to launch direct negotiations based on UN Security Council Resolutions 242 and 338. The process is to proceed along two tracks through direct negotiations between Israel and Palestinians and Israel and Arab states.

Negotiations between Israel and Palestinians on the status of the occupied territories are to proceed in phases, beginning with negotiations on interim self-government arrangements to be followed at the beginning of the third year of the transition period by negotiations on final status. The transitional period will last five years. The United States recognizes the importance of the transition period and will do its utmost to achieve the objective of reaching agreement on interim self-government arrangements within one year.

The purpose of the interim negotiations is to achieve the peaceful and orderly transfer of authority from Israel to Palestinians. Indeed, through the negotiating process new relationships can be created that will allow Palestinians self-government and real authority over the political and economic decisions that affect their lives.

The negotiations between Israel and the Arab states will be based on 242 and 338. In this regard I want to assure you that the United States believes that 242 applies to all fronts and that we will work to ensure that the negotiations are designed to ensure a comprehensive settlement of all issues related to the conflict. The United States is determined to achieve a comprehensive settlement of the Arab-Israeli conflict and will do its utmost to ensure that the process moves forward along both tracks toward this end. The United States does not support linkage between the various negotiations; in pursuit of a comprehensive settlement, all the negotiations should proceed as quickly as possible toward agreement.

The United States understands that Jordan and Israel have a number of bilateral issues that need to be negotiated, including territorial issues, not directly covered by UNSC 242. The United States supports Jordan's right to raise these issues in the negotiations and hopes that a way can be found to resolve them.

The United States has long believed that no party should take unilateral actions that seek to predetermine issues that can only be resolved through negotiations. In this regard the United States has opposed and will continue to oppose settlement activity in the territories occupied in 1967, which remains an obstacle to peace.

With regard to Jerusalem, the United States understands the importance that all parties attach to the city. For this reason it has long been the position of the United States that the city must not be divided, its future status to be determined in negotiations. Thus we do not recognize the sovereignty of any party there, and we encourage all sides to avoid unilateral acts that would exacerbate local tensions or make negotiations more difficult.

I welcome Jordan's willingness to participate in a joint Jordanian-Palestinian delegation at the peace conference. In this regard, there are several issues that I want to address. It is understood that Jordan will negotiate directly with Israel on issues that concern their bilateral relations and that Jordan will discuss with Palestinians the manner and form of Jordan's participation on issues relating to the occupied territories. It is our intention to deliver invitations for a joint delegation to the Government of Jordan and to Palestinians in the territories. Both the Jordanian and Palestinian sides of the delegation will have the opportunity to make statements at the conference.

With regard to the composition of the delegation, it is our understanding that Palestinians will choose members of their side of the delegation. Delegation members should be Palestinians from the territories who accept the two track process, negotiations in phases, and who are willing to live in peace with Israel. We have made it clear to Palestinians that it is the United States position that east Jerusalemites will be eligible to vote in the elections for an interim self-governing authority. It is also the United States position that a Palestinian resident in Jordan with ties to a prominent Jerusalem family will be eligible to join the Jordanian side of the delegation. The absence of an east Jerusalemite from the delegation at this stage will in no way have a prejudicial or precedential effect on the outcome of the negotiations or the Palestinian claims to east Jerusalem. The United States further believes that east Jerusalemites and Palestinians from outside the occupied territories who meet the three criteria noted above should be able to participate in the talks on final status.

The United States will act as an honest broker in trying to resolve the Arab-Israeli conflict through understanding the needs and requirements of all parties. It is our intention, together with the Soviet Union, to play the role of a driving force in this process to help the parties move forward toward a comprehensive peace. Any party will have access to the co-sponsors at any time. The United States is prepared to participate in all stages of the negotiations, with the consent of the parties to each negotiation.

These are the assurances that the United States is providing concerning the implementation of the initiative we have discussed. President Bush in his March 6 address to Congress stated that the time has come to put an end to the Arab-Israeli conflict. We have a unique opportunity and a unique set of circumstances that has increased the hope of doing so. I am persuaded that we indeed have an historic opportunity. The United States and Jordan working together can move the process forward to a peace conference and negotiations and then on toward the comprehensive peace that we all seek.

SOURCE: Document provided to the authors by Dr Marwan Muasher, who in 1991 was the spokesman of the Jordanian delegation to the peace talks at Madrid. The date on the typed document is given, probably erroneously, as 16 September 1991.