Foreword

Leslie H. Gelb

Independent Task Force Report
Strengthening Palestinian Public Institutions

June 28, 1999

Council on Foreign Relations

 

To date, there has been no comprehensive and systematic assessment of the institutions of the Palestinian Authority, their structure and procedures, their ability to set priorities and to allocate resources, and their transparency and accountability. Nor has there been systematic examination of overlap between institutions and of institutional redundancy, or the effect of this redundancy on decision-making. This Task Force is the first such undertaking.

Unlike most other Independent Task Force Reports sponsored by the Council on Foreign Relations, this one on Strengthening Palestinian Public Institutions is not focused on U.S. policy. It does not take positions on the Middle East peace process, nor does it address the issue of Palestinian statehood. Its goal, instead, is a practical one: to assist the Palestinian Authority and organs of the international community-the World Bank, the International Monetary Fund, the United Nations, the European Union, and the donor community working with the Palestinian Authority-to improve the efficiency and credibility of the emerging Palestinian self-governing institutions. The distinguishing characteristics of this Task Force Report are its practical and detailed guidelines for the development of sound institutions and good governance.

The Task Force finds that despite its significant achievements, the Palestinian Authority must make extensive changes to ensure good governance-including a participatory political system, a pluralist civil society, sustainable development, and a free market economy-during transition to a permanent settlement and beyond. Among other measures, the report urges that the Palestinian Authority adopt a constitution, establish accountability for the executive branch to the legislature, centralize all public revenues and expenditures in the Ministry of Finance, encourage devolution of programs and projects not related directly to the conduct of the presidency to appropriate ministries and municipalities, and ensure the independence of the judiciary.

Confidence in the Palestinian Authority’s institutions affects its contest for legitimacy with radical elements that reject the Oslo accords and claim to do a better job than the Palestinian Authority at delivering certain services to the Palestinian people. This confidence bears on the Palestinian Authority’s ability to negotiate and compromise with Israel and affects Israel’s confidence in the Palestinian Authority’s ability to implement agreements. Good governance is therefore a necessary condition for the success of the peace process.

The Task Force comprised an unusually distinguished group of European, Middle Eastern, and American statesmen. I would especially like to thank Michel Rocard, Henry Siegman, Yezid Sayigh, and Khalil Shikaki for their hard work and commitment to this project. The impressive report they have produced should serve as a significant contribution not only to Palestinian institution-building but to Middle East peace as well.

Leslie H. Gelb, President, Council on Foreign Relations