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Appeasement in the Middle East: the British White Paper on Palestine

Published online by Cambridge University Press:  11 February 2009

Michael J. Cohen
Michael J. Cohen
Affiliation:
Bar-Ilan University, Israel
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Extract

The White Paper on Palestine, issued by the British Government in May 1939, adumbrated future British policy in Palestine at a time when all members of the Cabinet, including Chamberlain, had accepted the inevitability of war. Yet, while they were concerting measures for war on a global scale, the Middle Eastern theatre was of low military priority, and appeasement remained the order of the day, with the White Paper as its principal instrument. The White Paper severely restricted Jewish immigration into Palestine for the next five years and amde further, subsequent immigration dependent upon Arab consent. Britain also promised to set up an independent Palestinian State within the next ten years, if this should prove feasible.

Type
Articles
Information
The Historical Journal , Volume 16 , Issue 3 , September 1973 , pp. 571 - 596
Copyright
Copyright © Cambridge University Press 1973

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References

1 Maj. Gen. I. S. O. Playfair, , History of the Second World War. Military Series. The Mediterranean and the Middle East, i. (London, 1956), p. 18.Google Scholar For a fuller treatment of British strategy in the Mediterranean in this period, see the author's article in Journal of Contemporary History, 1972.Google Scholar

For a recent treatment of the St James's Conference, and the resulting White Paper, as seen more specifically from the Zionists' viewpoint, see Rose, N. A., The Gentile Zionists (London, 1973).Google Scholar

2 ‘Mediterranean and North-East Africa Appreciation’, of 21 Feb. 1938, by the Chiefs of Staff Sub-Committee (Chatfield, Newall, Gort), in W.O. 33/1507.

3 See ME (O) 292, of 24 Jan. 1939, in Cab. 51/11.

4 Minutes of 374th meeting of C.I.D., on 16 Feb. 1939, ME (O) 297, in Cab. 51/11.

5 See Anglo-French, Conversations of 28–29 Apr. 1938Google Scholar, in Documents on British Foreign Policy, Third Series, vol. 1, no. 164 (H.M.S.O.).Google Scholar

6 See Battershill, to SirMacMichael, Harold, of 6 07 1938, in the MacMichael Papers, at the Middle East Centre, St Antony's College, Oxford.Google Scholar

7 Hagana. Officially illegal Jewish Defence Forces, based on rural settlements. But the British were well aware that settlements had relied on these forces during the riots of 1936, when there were insufficient British troops to guard outlying rural settlements.

8 Report by Haining, , for the period 1 Aug.-3i Oct. 1938, in CO. 733/379, 75528/74.Google Scholar

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10 MacDonald, to MacMichael, , 22 Sept. 1938, in CO. 733/367, 75156/1, pt. 1.Google Scholar

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12 For minutes of MacDonald's meetings with DrWeizmann, , see his memo, for the Cabinet, of 21 Aug. 1938, C.P. 190, in Cab. 24/278Google Scholar

13 See Bullard, to MacDonald, , of 3 Aug. 1938.Google ScholarIbid.

14 Bullard's half-hearted advocacy of the Government's policy on Palestine had precipitated a row between the Foreign and the Colonial Offices. For minutes on this, see CO. 733/354, 75730/6.

15 See minutes of MacDonald-Weizmann, meeting, of 14 Sept. 1938, in S25/7563, C.Z.A.Google Scholar

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17 Bateman, to Oliphant, , 30 Aug. 1938, in F.O. 371/21881, E5726/10/31.Google Scholar

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19 See minutes of meeting of 14 Sept. 1938, in S25/7563, C.Z.A.

20 MacDonald quoted to Weizmann the current case of the Sudeten Germans.

21 For note of meeting of 19 Sept. 1938 at Weizmann's house, see Ben-Gurion, David, Letters to Paula (Tel Aviv, 1968), pp. 226–35.Google Scholar

22 Ben-Gurion, , op. cit. pp. 231–2.Google Scholar

23 ‘Appreciation of the situation in the Middle East from the Intelligence aspect in the event of Great Britain and France becoming involved in war against Germany and Italy in April 1939’ - memo, of 9 Nov. 1938, in W.O. 106–15948, M.I.2A.

24 MacDonald, memo, of 20 Oct. 1938, in F.O. 371/21865, E6572/1/31.Google Scholar

25 Memo, by Downie, H. F., of 2 Dec. 1938, in F.O. 371/21868, E7349/1/31.Google Scholar

26 Ibid.

27 Foreign Office minute of 19 Dec. 1938, in F.O. 371/21869, E7678/1/31.Google Scholar

28 This idea originated with J. Magnes (President of the Hebrew University) in Palestine. It was publicized by Lord Samuel in the House of Lords, and dubbed the ‘40–10 plan’, i.e. 40 per cent of the population after ten years.

29 See minutes of Cabinet meeting of 1 Feb. 1939, in Cab. 23/97.

30 Meeting of 9 Feb. 1939, F.O. 371/23223, E1059/6/31.

31 Meeting of n Feb. 1939, ibid. E1147/6/31.

32 Meeting of 14 Feb. 1939, F.O. 371/23224, E1219/6/31.

33 Meeting of 8 Feb. 1939, F.O. 371/23223, E1058/6/31.

34 Meeting of 10 Feb. 1939, in ibid. E1095/6/31.

35 Speech of Ben-Gurion to private meeting of ‘the Panel’ (the Jewish delegation to the Conference), on 12 Feb. 1939. W[eizmann] A[rchives, Rehovot]. In Oct. 1938, MacDonald himself had told Weizmann that the British had made their intentions of remaining in Palestine quite clear to the Arab States.

36 Meeting of 14 Feb. 1939, F.O. 371/23224, E1218/6/31.

37 Ibid.

38 Meeting of 15 Feb. 1939, ibid. E1223/6/31. There is no evidence that MacDonald asked or received Cabinet assent before dropping the planned first line of approach.

39 Meeting of 17 Feb. 1939, ibid. E1296/6/31.

40 Meeting between MacDonald, and Ben-Gurion, on 18 Feb. 1939, W.A.Google Scholar

41 Zionist memo, of 20 Feb. 1939, in F.O. 371/23225, E1384/6/31.Google Scholar

42 The Woodhead report had warned that an economic depression might ensue in Palestine, if Jewish immigration was stopped.

43 For following, see minutes of meeting of 22 Feb. 1939, in Cab. 23/97.

44 On 23 Feb. 1939, for minutes, see F.O. 371/23226, E1515/6/31.

45 Meeting of 23 Feb. 1939, F.O. 371/23225, E1448/6/31. Present were Halifax, MacDonald, Butler; Weizmann, Ben-Gurion, Shertok; Aly Maher Pasha (Egypt), Gen. Nuri Said (Iraq), Taufiq Suweidi (Iraq), and Fuad Bey Hamza (Saudi Arabia).

46 MacDonald's reassurance to the Jews was given at a meeting the following day, with their delegation alone. See minutes of meeting of 24 Feb. 1939, F.O. 371/23227, E1668/6/31.

47 Ibid.

48 See Weizmann, Chaim, Trial and Error (London, 1950), p. 499, and the Dugdale Diaries, 27 02. 1939. W.A.Google Scholar

49 MacDonald was at pains to distinguish between his proposal, which offered independent, elected institutions after five years with proper safeguards for minorities, and the Palestinians' concept of an independent Arab State which would possess full sovereignty. For the Jews, the distinction was purely academic.

50 At a meeting on 27 Feb. 1939. See F.O. 371/23226, E1550/6/31. The statement was drawn up by Ben-Gurion, Namier, Mrs Dugdale, N. Goldmann and Brodetsky the day before - see D.D. 26 Feb. 1939. W.A.

51 Meeting of 28 Feb. 1939, F.O. 371/23227, E1669/6/31.

52 Meeting with Arab delegation on i Mar. 1939, F.O. 371/23226, E1645/6/31.

53 MacDonald habitually rebutted the Zionists' arguments with those of the Arabs and vice-versa.

54 Meeting of 2 Mar. 1939, Cab. 23/97.

55 Meeting with the Arabs on 6 Mar. 1939, F.O. 371/23227, E1746/6/31.

56 For following, see minutes of meeting on 7 Mar. 1939, F.O. 371/23228, E1875/6/31. My account is largely supplemented by Ben-Gurion, , Talks with Arab headers (Tel Aviv, 1967), pp. 259–65. Ben-Gurion claims that the official British note of the meeting is in direct contradiction to notes taken by himself and Shertok.Google Scholar

57 The following is largely based on Ben-Gurion, who himself relies heavily on Shertok's Political Diary. In the official British Minutes of this meeting, there is no mention whatsoever of the closing dialogue.

58 For following, see minutes of meeting between MacDonald, Aly Maher Pasha, Fuad bey Hamza and Taufiq Suweidi, on 8 Mar. 1939, F.O. 371/23228, E1914/6/31.

59 See Weizmann, to MacDonald, , 8 Mar. 1939, W.A.Google Scholar

60 See minutes of Cabinet meeting of 8 Mar. 1939, in Cab. 23/97.

61 Yet on that very morning, MacDonald proposed to the Arabs a figure of 70,000. See minutes in F.O. 371/23228, E1914/6/31.

62 MacDonald's original plan had envisaged 15–30,000 Jews per annum for ten years, i.e. an immigration of 150–300,000. The final figure in the May White Paper was 75,000.

63 See minutes of Cabinet meeting of 8 Mar. 1939, in Cab. 23/97. In retrospect, this remark rings curiously - for on the following day the Czechs deposed the Slovakian Government, and within the week the Germans had marched into Prague (15 March), and turned Bohemia into a German Protectorate.

64 Meetings of 9 and 11 Mar. 1939, in F.O. 371/23228, E1874/1914/6/31.

66 The Cabinet Committee on Palestine worked out the details on 13 Mar. 1939 - see F.O. 371/23229, E 1951/6/31. The Cabinet ratified these proposals on 15 Mar. 1939. See minutes in Cab. 23/98.

66 See minutes of meetings of 21 and 23 Mar. 1939, in F.O. 371/23232, E2234/E2306/E2414/ E2417/6/31.

67 Meeting of 6 Apr. 1939, in F.O. 371/23233, E2621/6/31.

68 MacDonald later claimed he had been overruled on this point - which was naturally opposed by his High Commissioner in Palestine. See note on MacMichael - MacDonald, , 16 June 1939, in CO. 733/410, 75872/85.Google Scholar

69 See Lampson, to Foreign Office, of 11 Apr. 1939, in F.O. 371/23233, E2621/6/31.Google Scholar

70 Meeting of 20 Apr. 1939, in F.O. 371/23234, E2955/6/31. The delay was due to MacDonald's absence, on convalescence at the French Riviera.

71 Ibid.

72 Ibid.

73 See Foreign Office to Lampson, 26 Apr. 1939Google Scholar, in ibid. E.3029/6/31.

74 See Lampson, to Foreign Office, 30 Apr. 1939Google Scholar, ibid.

75 Minutes of Cabinet meeting of 3 May 1939, in Cab. 23/99.Google Scholar

76 DrBrodetsky, and Shertok, met Shuckburgh on 13 Apr. 1939. See F.O. 371/23233, E2902/6/31. The Egyptian Ambassador in London had raised the alarm by flying off to Cairo on 6 Apr., with the latest British proposals, instead of sending them by telegraph, as intended by the British.Google Scholar

77 Meeting of Shertok, and Lourie, , with MacDonald, , on 27 Apr. 1939, in S25/9802, C.Z.A.Google Scholar

78 Ibid.

79 See Cmd. 6019, (H.M.S.O.).

80 Note by Downie, H. F. on ‘Government Policy at the London Conference’, of28 Aug. 1940, in C.O. 733/426, 75872/85.Google Scholar

81 MacDonald held two informal meetings with members of the Jewish Agency, on 12 and 16 March, but these were taken up with discussion of the Agency's rejection of the British terms. Weizmann himself was not present at either meeting, but at a meeting he had with MacDonald alone on 14 March, he told the latter that Britain was betraying the Jews, and asked for a meeting, alone, with the Prime Minister. See F.O. 371/23230, E2024/6/31. The negotiations carried on by the British delegation with the Arab States, included only the three most powerful States - Egypt, Iraq and Saudi Arabia. Transjordan and the Yemen were left out.

82 The British attitude to the ‘constitutional’ clauses, which would have placed Palestinians in charge of Ministries upon the restoration of peace, is dealt with below.

83 In Feb. 1940.

84 See Sykes, Christopher, Orde Wingate (London, 1959), pp. 197–8.Google Scholar

85 The Cabinet Committee in fact overruled MacDonald on this point - the latter had advised against putting Palestinians in charge of Ministries so soon. See note on MacMichael to MacDonald, of 16 June 1939, in C.O. 733/410, 75872/85.Google Scholar

86 See draft memorandum for Cabinet of Nov. 1940, in C.O. 733/426, 75872/85.

87 See Shuckburgh, minute of 4 Dec. 1940Google Scholar, ibid.

88 Ibid.

89 For the following, see Bagallay minute of 3 June 1940, in F.O. 371/24566, E2077/50/31.

90 Ibid. My emphasis.