867N.01/1593
The British Embassy
to the Department of State
Aide-Mémoire
His Majesty’s Embassy are instructed to communicate, for the
confidential information of the State Department, the accompanying
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document giving the
substance of the final British proposals regarding Palestine.
In doing so His Majesty’s Embassy are to explain in confidence that
the constitutional changes proposed by His Majesty’s Government are
designed to give effect to that part of Article 2 of the Palestine
Mandate which refers to the necessity of securing the development of
self-governing institutions. Hitherto, through no fault of His
Majesty’s Government but solely on account of non-cooperation on the
part of Arabs or Jews, it has not proved possible to make much
progress in this direction.
The Palestinian Arabs, during the present conference, have demanded
the establishment of an independent Arab state in Palestine. His
Majesty’s Government have, of course, not been able to accept this
demand nor have His Majesty’s Government finally committed
themselves as regards the nature of the future independent
Palestinian state. They have, however, maintained that a
transitional period of indeterminate length will be necessary before
Palestine can achieve her independence, and that full independence
cannot be granted until there is a sufficient measure of cooperation
between Arabs and Jews in Palestine to make good government
possible. This means that the Arabs will not be able to obtain their
share of independence until they have succeeded in winning the
confidence and cooperation of the Jews and should give the Jews
every opportunity of safeguarding their own interests.
As regards immigration the time has obviously now come for His
Majesty’s Government to put an end to the state of uncertainty which
has been the main cause of the present disturbed conditions in
Palestine. His Majesty’s Government have already facilitated the
arrival in Palestine of approximately 400,000 Jews in pursuance of
their obligations as laid down in the Mandate to secure the
establishment of a Jewish national home. It will be remembered that
the Arabs were never consulted regarding the Mandate and have
refused to agree to or recognise either the Mandate or the Balfour
Declaration. The Arabs have hitherto had no assurance where this
process of admitting Jews to Palestine without their consent will
end; they are insisting that all further Jewish immigration should
at once be stopped. His Majesty’s Government have not agreed to this
but they have decided that it is reasonable that, after a period of
five years during which immigration will on the average slightly
exceed its present level, the Jews should have to obtain Arab
consent to any further Jewish immigration.
If the Jews are required to obtain Arab consent to what they regard
as the vital question of further immigration and the Arabs have to
obtain Jewish consent before they can secure an independent
Palestine, it would seem that the elements of a compromise are
present.
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His Majesty’s
Government feel that the most important consideration regarding
Palestine is that Arabs and Jews should learn to work together and
they think the present scheme offers the best prospect of favouring
the growth of such cooperation.
It is unlikely that the present proposals, though they involve a
change of policy, would require an amendment of the Mandate.
Washington
, March
17, 1939.
[Enclosure]
Substance of Final British Proposals
Regarding Palestine
A. Constitution.
(1) His Majesty’s Government’s ultimate objective is the
termination of the mandate and the establishment of an
independent Palestinian state, possibly of a federal nature, in
such treaty relations with Great Britain as would provide
satisfactorily for her commercial and strategic interests.
(2) His Majesty’s Government have no intention that Palestine
should become a Jewish state or an Arab state; nor do they
regard their pledges to either Jews or Arabs as requiring them
to promote either of these alternatives. It should be a state in
which the Arabs and the Jews share in the government in such a
way as to ensure that the essential interests of each are
safeguarded.
(3) The constitution of the independent state would be drafted in
due course by a national assembly of the people of Palestine,
either elected or nominated as may be agreed. His Majesty’s
Government would be represented on the assembly and would have
to be satisfied as to the provisions of the constitution, and in
particular as regards (a) the security of
and access to the Holy Places; (b) the
protection of the different communities in Palestine in
accordance with the obligations of His Majesty’s Government to
both Arabs and Jews, and as regards securing the special
position in Palestine of the Jewish national home.
His Majesty’s Government would also require to be satisfied that
the interests of certain foreign countries in Palestine, for the
preservation of which His Majesty’s Government are at present
responsible, were adequately safeguarded.
(4) The establishment of the independent state would be preceded
by a transitional period throughout which His Majesty’s
Government, as mandatory power, would retain responsibility for
the government of the country.
(5) As soon as peace and order are sufficiently restored, the
first steps are to be taken towards giving the people of
Palestine, during
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the
transitional period, an increasing part in the government of the
country, (a) The first stage of this
process would be as follows; in the legislative sphere—the addition of a certain number of
Palestinians (Arabs and Jews) by nomination, to the Advisory
Council; the numbers of Arab and Jewish representatives being
fixed approximately in proportion to population and so as to
give a majority of Palestinian members.
In the executive sphere—the selection of
Palestinian members of the Advisory Council to sit on Executive
Council; the numbers of Arab and Jewish representatives being
fixed approximately in proportion to the population and so that
half of the members of the Council would be Palestinians.
(b) The next stage would be—in the legislative sphere—the conversion of the
Advisory Council into a legislative council with an elected
Palestinian element. Certain powers would be reserved to the
High Commissioner.
In the executive sphere—certain
departments would be placed in charge of Palestinian members of
the Executive Council.
(c) Further advances towards
self-government in the transitional period might be in the
direction of increasing the powers of the Legislative Council
and placing more departments under the charge of Palestinian
members of Executive Council.
(6) His Majesty’s Government would be prepared, if conditions in
Palestine permit, to hold elections for a Legislative Council
(the composition and powers of which would be a matter for
consultation between the original parties) within two years.
Beyond this no timetable can be fixed now for the advance from
stage to stage of constitutional development in the transitional
period; nor can a date be fixed for the end of the transitional
period and establishment of an independent state. His Majesty’s
Government would hope that the whole process could be completed
in ten years, but this must depend upon the situation in
Palestine and upon the success of the various constitutional
changes during the transitional period and upon the likelihood
of effective cooperation in government by the people of
Palestine. His Majesty’s Government could not contemplate
relinquishing all responsibility for the government of Palestine
unless there were assurance that the measure of agreement
between the communities in Palestine was such as to make good
government possible.
B. Immigration.
- (1)
- Immigration during the next five years would be at a rate
which, if economic absorptive capacity permits, would bring
the Jewish population up to approximately one third of the
population. This would mean an addition of 115,000 to the
present official figures of the Jewish population. From this
must be deducted a figure of
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40,000 representing the estimated
number of illegal immigrants now in Palestine. Immigration
over the next five years would therefore attain, if economic
absorptive capacity permits, a figure of 75,000 to be
admitted as follows—10,000 per year plus 25,000 Jewish
refugees, special consideration being given to children and
dependents, the refugees to be admitted as soon as the High
Commissioner is satisfied that adequate provision is secured
for them.
- (2)
- The existing machinery for ascertaining the economic
absorptive capacity of Palestine would be retained and the
High Commissioner would have ultimate responsibility for
deciding what the economic capacity allowed. Before a
decision was reached appropriate Jewish and Arab
representatives would be consulted.
- (3)
- After the period of five years no further Jewish
immigration would be permitted without the acquiescence of
all parties, to be obtained through the medium of the
appropriate constitutional organs functioning during the
transitional period, or by means of a conference
representative of Arabs, Jews and His Majesty’s
Government.
- (4)
- His Majesty’s Government are determined to check illegal
immigration and further preventive measures are being
adopted and will be firmly enforced. The numbers of any
Jewish illegal immigrants who despite these measures succeed
in coming into the country and cannot be deported would be
deducted from yearly quotas.
C. Land.
The High Commissioner would be given general powers to prohibit
and regulate transfers of land. The High Commissioner would be
instructed to fix areas in which transfer was to be permitted
freely, regulated, or prohibited, in the light of the findings
of the Peel and Woodhead reports. He would retain this power
throughout the transitional period.