Mandatory Palestine or the British Mandate of Palestine (English: Palestine; Arabic: فلسطين Filasţīn; Hebrew: פָּלֶשְׂתִּינָה (א"י) Palestína (EY), where "EY" indicates "Eretz Yisrael") was a geopolitical entity under British administration, carved out of Ottoman Southern Syria after World War I. British civil administration in Palestine operated from 1920 until 1948.
|Mandate of the United Kingdom|
Christianity · Druze
|Political structure||League of Nations Mandate|
|-||1920–1925 (first)||Sir Herbert Louis Samuel|
|-||1945–1948 (last)||Sir Alan G. Cunningham|
|Historical era||Interwar period · World War II|
|-||Mandate assigned||25 April 1920|
|-||Britain officially assumes control||29 September 1923|
|-||Israel declared independent||14 May 1948|
|Currency||Egyptian pound (until 1927)
Palestine pound (from 1927)
|Today part of|| Israel
West Bank Gaza Strip
Mandatory Palestine or the British Mandate of Palestine (English: Palestine; Arabic: فلسطين Filasţīn; Hebrew: פָּלֶשְׂתִּינָה (א"י) Palestína (EY), where "EY" indicates "Eretz Yisrael") was a geopolitical entity under British administration, carved out of Ottoman Southern Syria after World War I. British civil administration in Palestine operated from 1920 until 1948.
In 1917, during the First World War, Britain defeated the Ottoman forces and occupied and set up a military administration, named Occupied Enemy Territory Administration, across the former Ottoman Syria. The land remained under British military administration for the remainder of the war, and beyond. The British sought to set up legitimacy for their continued control of the region and this was achieved by obtaining a mandate from the League of Nations in June 1922. The formal objective of the League of Nations Mandate system was to administer parts of the defunct Ottoman Empire, which had been in control of the Middle East since the 16th century, "until such time as they are able to stand alone." The civil Mandate administration was formalized with the League of Nations' consent in 1923 under the British Mandate for Palestine, which covered two administrative areas. The land west of the Jordan River, known as Palestine, was under direct British administration until 1948, while the land east of the Jordan was a semi-autonomous region known as Transjordan, under the rule of the Hashemite family from the Hijaz, and gained independence in 1946.
Through the British Mandate period, the area experienced the ascent of two major nationalist movements, one among the Jews and the other among the Arabs. Competition and collision of those nationalist movements have had a significant impact on the history of that period, with violence peaking especially high during the Arab Revolt of 1936-1939 and the Civil War of 1947-1948. World War II had made little direct impact on life in Mandatory Palestine, but its indirect effects eventually led to the sectarian Civil War and eventual British evacuation.
The aftermath of the Civil War and the consequent Arab-Israeli War of 1948 led to the establishment of 1949 cease fire, with partition of the former Mandatory Palestine between the newborn Israel with Jewish majority, the West Bank annexed by Jordanian Kingdom and the Arab All-Palestine Government in Gaza Strip under military occupation of Egypt.
Following its occupation by British troops in 1917–1918, Palestine was governed by the Occupied Enemy Territory Administration. In July 1920, the military administration was replaced by a civilian administration headed by a High Commissioner. The first High Commissioner, Herbert Samuel, arrived in Palestine on 20 June 1920, to take up his appointment from 1 July.
Following the arrival of the British, Muslim-Christian Associations were established in all the major towns. In 1919 they joined together to hold the first Palestine Arab Congress in Jerusalem. Its main platforms were a call for representative government and opposition to the Balfour Declaration.
The Zionist Commission was formed in March 1918 and was active in promoting Zionist objectives in Palestine. On 19 April 1920, elections were held for the Assembly of Representatives of the Palestinian Jewish community. The Zionist Commission received official recognition in 1922 as representative of the Palestinian Jewish community.
Samuel tried to establish self-governing institutions in Palestine, as required by the mandate, but was frustrated by the refusal of the Arab leadership to co-operate with any institution which included Jewish participation. When Grand Mufti of Jerusalem Kamil al-Husayni died in March 1921, High Commissioner Samuel appointed his half-brother Mohammad Amin al-Husayni to the position. Amin al-Husayni, a member of the al-Husayni clan of Jerusalem, was an Arab nationalist and Muslim leader. As Grand Mufti, as well as the other influential positions that he held during this period, al-Husayni played a key role in violent opposition to Zionism. In 1922, al-Husayni was elected President of the Supreme Muslim Council which had been created by Samuel in December 1921. The Council controlled the Waqf funds, worth annually tens of thousands of pounds and the orphan funds, worth annually about £50,000, as compared to the £600,000 in the Jewish Agency's annual budget. In addition, he controlled the Islamic courts in Palestine. Among other functions, these courts were entrusted with the power to appoint teachers and preachers.
The 1922 Palestine Order in Council established a Legislative Council, which was to consist of 23 members; 12 elected, 10 appointed and the High Commissioner. Of the 12 elected members, eight were to be Muslim Arabs, two Christian Arabs and two Jews. Arabs protested against the distribution of the seats, arguing that as they constituted 88% of the population, having only 43% of the seats was unfair. Elections were held in February and March 1923, but due to an Arab boycott, the results were annulled and a 12-member Advisory Council was established.
In October 1923, Britain provided the League of Nations with a report on the administration of Palestine for the period 1920–1922, which covered the period before the mandate.
In 1930, Sheikh Izz ad-Din al-Qassam arrived in Palestine and organised and established the Black Hand, an anti-Zionist and anti-British militant organisation. He recruited and arranged military training for peasants and by 1935 he had enlisted between 200 and 800 men. The cells were equipped with bombs and firearms, which they used to kill Zionist settlers in the area, as well as engaging in a campaign of vandalism of the settlers-planted trees and British constructed rail-lines. In November 1935, two of his men engaged in a firefight with a Palestine police patrol hunting fruit thieves and a policeman was killed. Following the incident, British police launched a manhunt and surrounded al-Qassam in a cave near Ya'bad. In the ensuing battle, al-Qassam was killed.
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The death of al-Qassam in 1936 generated widespread outrage in the Arab community. Huge crowds accompanied Qassam's body to his grave in Haifa. A few months later, in April 1936, the Arab national general strike broke out. The strike lasted until October 1936, instigated by the Arab Higher Committee, headed by Amin al-Husseini. During the summer of that year, thousands of Jewish-farmed acres and orchards were destroyed, Jewish civilians were attacked and killed, and some Jewish communities, such as those in Beisan and Acre, fled to safer areas.(Gilbert 1998, p. 80) The violence abated for about a year while the British sent the Peel Commission to investigate.(Khalidi 2006, pp. 87–90)
During the first stages of the Arab Revolt, due to rivalry between the clans of al-Husseini and Nashashibi among the Palestinian Arabs, Raghib Nashashibi was forced to flee to Egypt after several assassination attempts ordered by the radical mufti of Jerusalem, Haj Amin al-Husayni.
Following the Arab rejection of the Peel Commission recommendation, the revolt resumed in autumn 1937. Over the next 18 months, the British lost control of Nablus and Hebron. British forces, supported by 6,000 armed Jewish auxiliary police, suppressed the widespread riots with overwhelming force. The British officer Charles Orde Wingate (who supported a Zionist revival for religious reasons) organised Special Night Squads composed of British soldiers and Jewish volunteers such as Yigal Alon, which “scored significant successes against the Arab rebels in the lower Galilee and in the Jezreel valley”(Black 1991, p. 14) by conducting raids on Arab villages. (Shapira 1992, pp. 247, 249, 350) The Jewish militia Irgun used violence also against Arab civilians as "retaliatory acts", attacking marketplaces and buses.
By the time the revolt concluded in March 1939, more than 5,000 Arabs, 400 Jews, and 200 Britons had been killed and at least 15,000 Arabs were wounded. The Revolt resulted in the deaths of 5,000 Palestinian Arabs and the wounding of 10,000. In total, 10% of the adult Arab male population was killed, wounded, imprisoned, or exiled.(Khalidi 2001, p. 26) From 1936 to 1945, whilst establishing collaborative security arrangements with the Jewish Agency, the British confiscated 13,200 firearms from Arabs and 521 weapons from Jews.(Khalidi 1987, p. 845)
The attacks on the Jewish population by Arabs had three lasting effects: First, they led to the formation and development of Jewish underground militias, primarily the Haganah, which were to prove decisive in 1948. Secondly, it became clear that the two communities could not be reconciled, and the idea of partition was born. Thirdly, the British responded to Arab opposition with the White Paper of 1939, which severely restricted Jewish land purchase and immigration. However, with the advent of World War II, even this reduced immigration quota was not reached. The White Paper policy also radicalised segments of the Jewish population, who after the war would no longer cooperate with the British.
The revolt had a negative effect on Palestinian Arab leadership, social cohesion, and military capabilities and contributed to the outcome of the 1948 War because “when the Palestinians faced their most fateful challenge in 1947–49, they were still suffering from the British repression of 1936–39, and were in effect without a unified leadership. Indeed, it might be argued that they were virtually without any leadership at all”.(Khalidi 2001, p. 28)
In 1937, the Peel Commission proposed a partition between a small Jewish state, whose Arab population would have to be transferred, and an Arab state to be attached to Jordan. The proposal was rejected by the Arabs. The two main Jewish leaders, Chaim Weizmann and David Ben-Gurion, had convinced the Zionist Congress to approve equivocally the Peel recommendations as a basis for more negotiation.
Following the London Conference (1939) the British Government published a White Paper which proposed a limit to Jewish immigration from Europe, restrictions on Jewish land purchases, and a program for creating an independent state to replace the Mandate within ten years. This was seen by the Yishuv as betrayal of the mandatory terms, especially in light of the increasing persecution of Jews in Europe. In response, Zionists organised Aliyah Bet, a program of illegal immigration into Palestine. Lehi, a small group of extremist Zionists, staged armed attacks on British authorities in Palestine. However, the Jewish Agency, which represented the mainstream Zionist leadership, still hoped to persuade Britain to allow resumed Jewish immigration, and cooperated with Britain in World War II.
On 10 June 1940, Italy declared war on the British Commonwealth and sided with Germany. Within a month, the Italians attacked Palestine from the air, bombing Tel Aviv and Haifa, inflicting multiple casualties.
In 1942, there was a period of great concern for the Yishuv, when the forces of German General Erwin Rommel advanced east in North Africa towards the Suez Canal and there was fear that they would conquer Palestine. This period was referred to as the two hundred days of anxiety. This event was the direct cause for the founding, with British support, of the Palmach – a highly-trained regular unit belonging to Haganah (a paramilitary group which was mostly made up of reserve troops).
As in most of the Arab world, there was no unanimity amongst the Palestinian Arabs as to their position regarding the combatants in World War II. A number of leaders and public figures saw an Axis victory as the likely outcome and a way of securing Palestine back from the Zionists and the British. Even though Arabs were not highly regarded by Nazi racial theory, the Nazis encouraged Arab support as a counter to British hegemony. SS-Reichsfuehrer Heinrich Himmler was keen to exploit this, going so far as to enlist the aid of the Grand Mufti of Jerusalem, Mohammad Amin al-Husayni, sending him the following telegram on 2 November 1943:
"'To the Grand Mufti: The National Socialist movement of Greater Germany has, since its inception, inscribed upon its flag the fight against the world Jewry. It has therefore followed with particular sympathy the struggle of freedom-loving Arabs, especially in Palestine, against Jewish interlopers. In the recognition of this enemy and of the common struggle against it lies the firm foundation of the natural alliance that exists between the National Socialist Greater Germany and the freedom-loving Muslims of the whole world. In this spirit I am sending you on the anniversary of the infamous Balfour declaration my hearty greetings and wishes for the successful pursuit of your struggle until the final victory – Reichsfuehrer S.S. Heinrich Himmler"
The Mufti al-Husseini would spend the rest of the war in Nazi Germany and the occupied areas in Europe.
On the other side, about 6,000 Palestinian Arabs and 30,000 Palestinian Jews joined the British forces, forming the Palestine Regiment.
On 3 July 1944, the British government consented to the establishment of a Jewish Brigade, with hand-picked Jewish and also non-Jewish senior officers. On 20 September 1944, an official communique by the War Office announced the formation of the Jewish Brigade Group of the British Army. The Jewish brigade then was stationed in Tarvisio, near the border triangle of Italy, Yugoslavia, and Austria, where it played a key role in the Berihah's efforts to help Jews escape Europe for Palestine, a role many of its members would continue after the brigade was disbanded. Among its projects was the education and care of the Selvino children. Later, veterans of the Jewish Brigade became key participants of the new State of Israel's Israel Defense Forces.
From Palestine Regiment, two platoons, one Jewish, under the command of Brigadier Ernest Benjamin, and another Arab were sent to join allied forces on the Italian Front, having taken part of final offensive there.
Besides Jews and Arabs from Palestine, in total by mid-1944 the British had assembled a multiethnic force consisting of volunteers European Jewish (refugees from German-occupied countries), Yeminites and Abyssinian Jews.
In 1939, as a consequence of the White Paper of 1939, the British reduced the number of immigrants allowed into Palestine. World War II and the Holocaust started shortly thereafter and once the 15,000 annual quota was exceeded, Jews fleeing Nazi persecution were interned in detention camps or deported to places such as Mauritius.
Starting in 1939, a clandestine immigration effort called Aliya Bet was spearheaded by an organisation called Mossad LeAliyah Bet. Tens of thousands of European Jews escaped the Nazis in boats and small ships headed for Palestine. The Royal Navy intercepted many of the vessels; others were unseaworthy and were wrecked; two more were sunk by Soviet submarines. The motor schooner Struma was torpedoed and sunk in the Black Sea by a Soviet submarine in February 1942 with the loss of nearly 800 lives. The last refugee boats to try to reach Palestine during the war were the Bulbul, Mefküre and Morina in August 1944. A Soviet submarine sank the motor schooner Mefküre by torpedo and shellfire and machine-gunned survivors in the water, killing between 300 and 400 refugees. Illegal immigration resumed after World War II.
After the war 250,000 Jewish refugees were stranded in displaced persons (DP) camps in Europe. Despite the pressure of world opinion, in particular the repeated requests of US President Harry S. Truman and the recommendations of the Anglo-American Committee of Inquiry that 100,000 Jews be immediately granted entry to Palestine, the British maintained the ban on immigration.
The Jewish Lehi (Fighters for the Freedom of Israel) and Irgun (National Military Organization) movements initiated violent uprisings against the British Mandate in 1940 and 1944 respectively. On 6 November 1944, Eliyahu Hakim and Eliyahu Bet Zuri (members of Lehi) assassinated Lord Moyne in Cairo. Moyne was the British Minister of State for the Middle East and the assassination is said by some to have turned British Prime Minister Winston Churchill against the Zionist cause. After the assassination of Lord Moyne, the Haganah kidnapped, interrogated, and turned over to the British many members of the Irgun ("The Hunting Season"), and the Jewish Agency Executive decided on a series of measures against "terrorist organizations" in Palestine. Irgun ordered its members not to resist or retaliate with violence, so as to prevent a civil war. The three main Jewish underground forces later united to form the Jewish Resistance Movement and carry out several terrorist attacks and bombings against the British administration. In 1946, the Irgun blew up the King David Hotel in Jerusalem, the headquarters of the British administration, killing 92 people. Following the bombing, the British Government began interning illegal Jewish immigrants in Cyprus.
The negative publicity resulting from the situation in Palestine caused the mandate to become widely unpopular in Britain, and caused the United States Congress to delay granting the British vital loans for reconstruction. The British Labour party had promised before its election to allow mass Jewish migration into Palestine but reneged on this promise once in office. Anti-British Jewish terrorism increased and the situation required the presence of over 100,000 British troops in the country. Following the Acre Prison break and the retaliatory hanging of British Sergeants by the Irgun, the British announced their desire to terminate the mandate and withdraw by May 1948.
The Anglo-American Committee of Inquiry in 1946 was a joint attempt by Britain and the United States to agree on a policy regarding the admission of Jews to Palestine. In April, the Committee reported that its members had arrived at a unanimous decision. The Committee approved the American recommendation of the immediate acceptance of 100,000 Jewish refugees from Europe into Palestine. It also recommended that there be no Arab, and no Jewish State. The Committee stated that "in order to dispose, once and for all, of the exclusive claims of Jews and Arabs to Palestine, we regard it as essential that a clear statement of principle should be made that Jew shall not dominate Arab and Arab shall not dominate Jew in Palestine." U.S. President Harry S. Truman angered the British Labour Party by issuing a statement supporting the 100,000 refugees but refusing to acknowledge the rest of the committee's findings. Britain had asked for U.S assistance in implementing the recommendations. The U.S. War Department had said earlier that to assist Britain in maintaining order against an Arab revolt, an open-ended U.S. commitment of 300,000 troops would be necessary. The immediate admission of 100,000 new Jewish immigrants would almost certainly have provoked an Arab uprising.
These events were the decisive factors that forced Britain to announce their desire to terminate the Palestine Mandate and place the Question of Palestine before the United Nations, the successor to the League of Nations. The UN created UNSCOP (the UN Special Committee on Palestine) on 15 May 1947, with representatives from 11 countries. UNSCOP conducted hearings and made a general survey of the situation in Palestine, and issued its report on 31 August. Seven members (Canada, Czechoslovakia, Guatemala, Netherlands, Peru, Sweden, and Uruguay) recommended the creation of independent Arab and Jewish states, with Jerusalem to be placed under international administration. Three members (India, Iran, and Yugoslavia) supported the creation of a single federal state containing both Jewish and Arab constituent states. Australia abstained.
On 29 November, the UN General Assembly, voting 33 to 13, with 10 abstentions, adopted a resolution recommending the adoption and implementation of the Plan of Partition with Economic Union as Resolution 181 (II)., while making some adjustments to the boundaries between the two states proposed by it. The division was to take effect on the date of British withdrawal. The partition plan required that the proposed states grant full civil rights to all people within their borders, regardless of race, religion or gender. It is important to note that the UN General Assembly is only granted the power to make recommendations, therefore, UNGAR 181 was not legally binding. Both the U.S. and the Soviet Union supported the resolution. Haiti, Liberia, and the Philippines changed their votes at the last moment after concerted pressure from the U.S. and from Zionist organisations. The five members of the Arab League, who were voting members at the time, voted against the Plan.
The Jewish Agency, which was the Jewish state-in-formation, accepted the plan, and nearly all the Jews in Palestine rejoiced at the news. Israeli history books mention 29 November as the most important date in the creation of Israel as it refers to UNGA 181 of 1947 Partition of the Mandate of Palestine into two states and whereof Israel's Proclamation of Independence refers to UNGA 181 as its source of sovereignty in Ph's 9 & 15.
The partition plan was rejected out of hand by Palestinian Arab leadership and by most of the Arab population. Meeting in Cairo on November and December 1947, the Arab League then adopted a series of resolutions aimed at a military solution to the conflict.
Britain announced that it would accept the partition plan, but refused to enforce it, arguing it was not accepted by the Arabs. Britain also refused to share the administration of Palestine with the UN Palestine Commission during the transitional period. In September 1947, the British government announced that the Mandate for Palestine would end at midnight on 14 May 1948.
Some Jewish organisations also opposed the proposal. Irgun leader Menachem Begin announced: "The partition of the Homeland is illegal. It will never be recognized. The signature by institutions and individuals of the partition agreement is invalid. It will not bind the Jewish people. Jerusalem was and will forever be our capital. Eretz Israel will be restored to the people of Israel. All of it. And for ever." These views were publicly rejected by the majority of the nascent Jewish state.
When the UK announced the independence of Transjordan in 1946, the final Assembly of the League of Nations and the General Assembly both adopted resolutions welcoming the news. However, the Jewish Agency and many legal scholars raised objections. The Jewish Agency said that Transjordan was an integral part of Palestine, and that according to Article 80 of the UN Charter, the Jewish people had a secured interest in its territory.
During the General Assembly deliberations on Palestine, there were suggestions that it would be desirable to incorporate part of Transjordan's territory into the proposed Jewish state. A few days before the adoption of Resolution 181 (II) on 29 November 1947, U.S. Secretary of State Marshall noted frequent references had been made by the Ad Hoc Committee regarding the desirability of the Jewish State having both the Negev and an "outlet to the Red Sea and the Port of Aqaba." According to John Snetsinger, Chaim Weizmann visited President Truman on 19 November 1947 and said it was imperative that the Negev and Port of Aqaba be under Jewish control and that they be included in the Jewish state. Truman telephoned the US delegation to the UN and told them he supported Weizmann's position.
The British had notified the U.N. of their intent to terminate the mandate not later than 1 August 1948, However, early in 1948, the United Kingdom announced its firm intention to end its mandate in Palestine on 14 May. In response, President Harry S. Truman made a statement on 25 March proposing UN trusteeship rather than partition, stating that "unfortunately, it has become clear that the partition plan cannot be carried out at this time by peaceful means... unless emergency action is taken, there will be no public authority in Palestine on that date capable of preserving law and order. Violence and bloodshed will descend upon the Holy Land. Large-scale fighting among the people of that country will be the inevitable result."
The Jewish Leadership, led by future Prime Minister, David Ben-Gurion, declared the establishment of a Jewish State in Eretz-Israel, to be known as the State of Israel, on the afternoon of Friday, 14 May 1948 (5 Iyar 5708 (Hebrew calendar date). On the same day, the Provisional Government of Israel asked the US Government for recognition, on the frontiers specified in the UN Plan for Partition. The United States immediately replied, recognizing the provisional government as the de facto authority. Israel was also quickly recognised by the Soviet Union and many other countries, but not by the surrounding Arab states.
Over the next few days, approximately 700 Lebanese, 1,876 Syrian, 4,000 Iraqi, 2,800 Egyptian troops invaded Palestine. Around 4,500 Transjordanian troops, commanded by 38 British officers, who had resigned their commissions in the British army only weeks earlier (commanded by General Glubb), invaded the Corpus separatum region encompassing Jerusalem and its environs (in response to the Haganah's Operation Kilshon), as well as areas designated as part of the Arab state by the UN partition plan.
The name given to the Mandate's territory was "Palestine", in accordance with European traditions. The term Palestine was coined in the Western culture from the name of Palaestina province of the Roman (Syria-Palaestina) and later Byzantine Empire (Palaestina Prima and Palaestina Secunda). The Mandate charter stipulated that Mandatory Palestine would have three official languages, namely English, Arabic and Hebrew.
In 1926, the British authorities formally decided to use the traditional Arabic and Hebrew equivalents to the English name, i.e. filasţīn (فلسطين) and palestína (פּלשׂתינה) respectively. The Jewish leadership proposed that the proper Hebrew name should be Eretz Yisra′el (ארץ ישׂראל=Land of Israel). The final compromise was to add the initials of the Hebrew proposed name, Alef-Yud, within parenthesis (א″י), whenever the Mandate's name was mentioned in Hebrew in official documents. The Arab leadership saw this compromise as a violation of the mandate terms. Some Arab politicians suggested that there should be a similar Arabic concession, such as "Southern Syria" (سوريا الجنوبية). The British authorities rejected this proposal.
The resolution of the San Remo Conference contained a safeguarding clause for the existing rights of the non-Jewish communities. The conference accepted the terms of the Mandate with reference to Palestine, on the understanding that there was inserted in the process-verbal a legal undertaking by the Mandatory Power that it would not involve the surrender of the rights hitherto enjoyed by the non-Jewish communities in Palestine. The draft mandates for Mesopotamia and Palestine, and all of the post-war peace treaties contained clauses for the protection of religious groups and minorities. The mandates invoked the compulsory jurisdiction of the Permanent Court of International Justice in the event of any disputes.
Article 62 (LXII) of the Treaty of Berlin, 13 July 1878 dealt with religious freedom and civil and political rights in all parts of the Ottoman Empire. The guarantees have frequently been referred to as "religious rights" or "minority rights". However, the guarantees included a prohibition against discrimination in civil and political matters. Difference of religion could not be alleged against any person as a ground for exclusion or incapacity in matters relating to the enjoyment of civil or political rights, admission to public employments, functions, and honours, or the exercise of the various professions and industries, "in any locality whatsoever."
A legal analysis performed by the International Court of Justice noted that the Covenant of the League of Nations had provisionally recognised the communities of Palestine as independent nations. The mandate simply marked a transitory period, with the aim and object of leading the mandated territory to become an independent self-governing State. Judge Higgins explained that the Palestinian people are entitled to their territory, to exercise self-determination, and to have their own State." The Court said that specific guarantees regarding freedom of movement and access to the Holy Sites contained in the Treaty of Berlin (1878) had been preserved under the terms of the Palestine Mandate and a chapter of the United Nations Partition Plan for Palestine.
According to historian Rashid Khalidi, the mandate ignored the political rights of the Arabs. The Arab leadership repeatedly pressed the British to grant them national and political rights, such as representative government, over Jewish national and political rights in the remaining 23% of the Mandate of Palestine which the British had set aside for a Jewish homeland. The Arabs reminded the British of President Wilson's Fourteen Points and British promises during the First World War. The British however made acceptance of the terms of the mandate a precondition for any change in the constitutional position of the Arabs. A legislative council was proposed in The Palestine Order in Council, of 1922 which implemented the terms of the mandate. It stated that: "No Ordinance shall be passed which shall be in any way repugnant to or inconsistent with the provisions of the Mandate." For the Arabs, this was unacceptable, as they felt that this would be "self murder". As a result the Arabs boycotted the elections to the Council held in 1923, which were subsequently annulled. During the whole interwar period, the British, appealing to the terms of the mandate, which they had designed themselves, rejected the principle of majority rule or any other measure that would give an Arab majority control over the government of Palestine.
The terms of the mandate required the establishment of self-governing institutions in both Palestine and Transjordan. In 1947, Foreign Secretary Bevin admitted that during the previous twenty-five years the British had done their best to further the legitimate aspirations of the Jewish communities without prejudicing the interests of the Arabs, but had failed to "secure the development of self-governing institutions" in accordance with the terms of the Mandate.
Under the British Mandate, the office of “Mufti of Jerusalem”, traditionally limited in authority and geographical scope, was refashioned into that of “Grand Mufti of Palestine”. Furthermore, a Supreme Muslim Council (SMC) was established and given various duties, such as the administration of religious endowments and the appointment of religious judges and local muftis. In Ottoman times, these duties had been fulfilled by the bureaucracy in Istanbul.(Khalidi 2006, p. 63) In dealings with the Palestinian Arabs, the British negotiated with the elite rather than the middle or lower classes.(Khalidi 2006, p. 52) They chose Hajj Amin al-Husayni to become Grand Mufti, although he was young and had received the fewest votes from Jerusalem’s Islamic leaders.(Khalidi 2006, pp. 56–57) One of the mufti's rivals, Raghib Bey al-Nashashibi, had already been appointed mayor of Jerusalem in 1920, replacing Musa Kazim, whom the British removed after the Nabi Musa riots of 1920,(Khalidi 2006, pp. 63, 69)(Segev 2000, pp. 127–144) during which he exhorted the crowd to give their blood for Palestine.(Morris 2001, p. 112) During the entire Mandate period, but especially during the latter half, the rivalry between the mufti and al-Nashashibi dominated Palestinian politics. Khalidi ascribes the failure of the Palestinian leaders to enroll mass support, because of their experiences during the Ottoman Empire period, as they were then part of the ruling elite and accustomed to their commands being obeyed. The idea of mobilising the masses was thoroughly alien to them.(Khalidi 2006, p. 81)
There had already been rioting and attacks on and massacres of Jews in 1921 and 1929. During the 1930s, Palestinian Arab popular discontent with Jewish immigration grew. In the late 1920s and early 1930s, several factions of Palestinian society, especially from the younger generation, became impatient with the internecine divisions and ineffectiveness of the Palestinian elite and engaged in grass-roots anti-British and anti-Zionist activism, organised by groups such as the Young Men's Muslim Association. There was also support for the radical nationalist Independence Party (Hizb al-Istiqlal), which called for a boycott of the British in the manner of the Indian Congress Party. Some took to the hills to fight the British and the Jews. Most of these initiatives were contained and defeated by notables in the pay of the Mandatory Administration, particularly the mufti and his cousin Jamal al-Husayni. A six-month general strike in 1936 marked the start of the great Arab Revolt.(Khalidi 2006, pp. 87–90)
The conquest of the Ottoman Syria by the British forces in 1917, found a mixed community in the region, with Palestine, the southern part of the Ottoman Syria, containing a mixed population of Muslims, Christians, Jews and Druze. In this period, the Jewish community (Yishuv) in Palestine was divided at the time to the traditional Jewish communities in cities (the Old Yishuv), which had existed for centuries, and the newly established agricultural Zionist communities (the New Yishuv), established since 1870s. With the establishment of the Mandate, the Jewish community in Palestine formed the Zionist Commission to represent its interests.
In 1929, the Jewish Agency for Palestine took over from the Zionist Commission its representative functions and administration of the Jewish community. During the Mandate period, the Jewish Agency was a quasi-governmental organisation that served the administrative needs of the Jewish community. Its leadership was elected by Jews from all over the world by proportional representation. The Jewish Agency was charged with facilitating Jewish immigration to Palestine, land purchase and planning the general policies of the Zionist leadership. It ran schools and hospitals, and formed the Haganah. The British authorities offered to create a similar Arab Agency but this offer was rejected by Arab leaders.
In response to numerous Arab attacks on Jewish communities, the Haganah, a Jewish paramilitary organisation, was formed on 15 June 1920 to defend Jewish residents. Tensions led to widespread violent disturbances on several occasions, notably in 1921 (see Jaffa riots), 1929 (primarily violent attacks by Arabs on Jews—see 1929 Hebron massacre) and 1936–1939. Beginning in 1936, Jewish groups such as Etzel (Irgun) and Lehi (Stern Gang) conducted campaigns of violence against British military and Arab targets.
During the Mandate, the Yishuv or Jewish community in Palestine, grew from one-sixth to almost one-third of the population. According to official records, 367,845 Jews and 33,304 non-Jews immigrated legally between 1920 and 1945. It was estimated that another 50–60,000 Jews and a marginal number of Arabs, mostly on seasonal circumstances, immigrated illegally during this period. Immigration accounted for most of the increase of Jewish population, while the non-Jewish population increase was largely natural.
Initially, Jewish immigration to Palestine met little opposition from the Palestinian Arabs. However, as anti-Semitism grew in Europe during the late 19th and early 20th centuries, Jewish immigration (mostly from Europe) to Palestine began to increase markedly. Combined with the growth of Arab nationalism in the region and increasing anti-Jewish sentiments the growth of Jewish population created much Arab resentment. The British government placed limitations on Jewish immigration to Palestine. These quotas were controversial, particularly in the latter years of British rule, and both Arabs and Jews disliked the policy, each for their own reasons.
Jewish immigrants were to be afforded Palestinian citizenship:
Article 7 . The Administration of Palestine shall be responsible for enacting a nationality law. There shall be included in this law provisions framed so as to facilitate the acquisition of Palestinian citizenship by Jews who take up their permanent residence in Palestine.
In 1919, the General Secretary (and future President) of the Zionist Organization, Nahum Sokolow, published History of Zionism (1600–1918). He also represented the Zionist Organization at the Paris Peace Conference.
|“||The object of Zionism is to establish for the Jewish people a home in Palestine secured by public law." ... ...It has been said and is still being obstinately repeated by anti-Zionists again and again, that Zionism aims at the creation of an independent "Jewish State" But this is fallacious. The "Jewish State" was never part of the Zionist programme. The Jewish State was the title of Herzl's first pamphlet, which had the supreme merit of forcing people to think. This pamphlet was followed by the first Zionist Congress, which accepted the Basle programme – the only programme in existence.||”|
—Nahum Sokolow, History of Zionism
One of the objectives of British administration was to give effect to the Balfour Declaration of 1917, which was also set out in the preamble of the mandate, as follows:
Whereas the Principal Allied Powers have also agreed that the Mandatory should be responsible for putting into effect the declaration originally made on November 2nd, 1917, by the Government of His Britannic Majesty, and adopted by the said Powers, in favour of the establishment in Palestine of a national home for the Jewish people, it being clearly understood that nothing should be done which might prejudice the civil and religious rights of existing non-Jewish communities in Palestine, or the rights and political status enjoyed by Jews in any other country.
The United Nations Special Committee on Palestine said the Jewish National Home, which derived from the formulation of Zionist aspirations in the 1897 Basle program has provoked many discussions concerning its meaning, scope and legal character, especially since it had no known legal connotation and there are no precedents in international law for its interpretation. It was used in the Balfour Declaration and in the Mandate, both of which promised the establishment of a "Jewish National Home" without, however, defining its meaning. A statement on "British Policy in Palestine," issued on 3 June 1922 by the Colonial Office, placed a restrictive construction upon the Balfour Declaration. The statement included "the disappearance or subordination of the Arabic population, language or customs in Palestine" or "the imposition of Jewish nationality upon the inhabitants of Palestine as a whole", and made it clear that in the eyes of the mandatory Power, the Jewish National Home was to be founded in Palestine and not that Palestine as a whole was to be converted into a Jewish National Home. The Committee noted that the construction, which restricted considerably the scope of the National Home, was made prior to the confirmation of the Mandate by the Council of the League of Nations and was formally accepted at the time by the Executive of the Zionist Organization.
In March 1930, Lord Passfield, the Secretary of State for the Colonies, had written a Cabinet Paper which said:
In the Balfour Declaration there is no suggestion that the Jews should be accorded a special or favoured position in Palestine as compared with the Arab inhabitants of the country, or that the claims of Palestinians to enjoy self-government (subject to the rendering of administrative advice and assistance by a Mandatory as foreshadowed in Article XXII of the Covenant) should be curtailed in order to facilitate the establishment in Palestine of a National Home for the Jewish people." ... Zionist leaders have not concealed and do not conceal their opposition to the grant of any measure of self-government to the people of Palestine either now or for many years to come. Some of them even go so far as to claim that that provision of Article 2 of the Mandate constitutes a bar to compliance with the demand of the Arabs for any measure of self-government. In view of the provisions of Article XXII of the Covenant and of the promises made to the Arabs on several occasions that claim is inadmissible.
The League of Nations Permanent Mandates Commission took the position that the Mandate contained a dual obligation. In 1932 the Mandates Commission questioned the representative of the Mandatory on the demands made by the Arab population regarding the establishment of self-governing institutions, in accordance with various articles of the mandate, and in particular Article 2. The Chairman noted that "under the terms of the same article, the mandatory Power had long since set up the Jewish National Home."
In 1937, the Peel Commission, a British Royal Commission headed by Earl Peel, proposed solving the Arab–Jewish conflict by partitioning Palestine into two states. The two main Jewish leaders, Chaim Weizmann and David Ben-Gurion, had convinced the Zionist Congress to approve equivocally the Peel recommendations as a basis for more negotiation. The US Consul General at Jerusalem told the State Department that the Mufti had refused the principle of partition and declined to consider it. The Consul said that the Emir Abdullah urged acceptance on the ground that realities must be faced, but wanted modification of the proposed boundaries and Arab administrations in the neutral enclave. The Consul also noted that Nashashibi sidestepped the principle, but was willing to negotiate for favourable modifications.
A collection of private correspondence published by David Ben Gurion contained a letter written in 1937 which explained that he was in favour of partition because he didn't envision a partial Jewish state as the end of the process. Ben Gurion wrote "What we want is not that the country be united and whole, but that the united and whole country be Jewish." He explained that a first-class Jewish army would permit Zionists to settle in the rest of the country with or without the consent of the Arabs. Benny Morris said that both Chaim Weizmann and David Ben Gurion saw partition as a stepping stone to further expansion and the eventual takeover of the whole of Palestine. Former Israeli Foreign Minister and historian Schlomo Ben Ami writes that 1937 was the same year that the "Field Battalions" under Yitzhak Sadeh wrote the "Avner Plan", which anticipated and laid the groundwork for what would become in 1948, Plan D. It envisioned going far beyond any boundaries contained in the existing partition proposals and planned the conquest of the Galilee, the West Bank, and Jerusalem.
In 1942, the Biltmore Program was adopted as the platform of the World Zionist Organization. It demanded "that Palestine be established as a Jewish Commonwealth." In 1946 an Anglo-American Committee of Inquiry, also known as the Grady-Morrison Committee, noted that the demand for a Jewish State went beyond the obligations of either the Balfour Declaration or the Mandate and had been expressly disowned by the Chairman of the Jewish Agency as recently as 1932. The Jewish Agency subsequently refused to accept the Grady Morrison Plan as the basis for discussion. A spokesman for the agency, Eliahu Epstein, told the US State Department that the Agency could not attend the London conference if the Grady-Morrison proposal was on the agenda. He stated that the Agency was unwilling to be placed in a position where it might have to compromise between the Grady-Morrison proposals on the one hand and its own partition plan on the other. He stated that the Agency had accepted partition as the solution for Palestine which it favoured.
After transition to the British rule, much of the agricultural land in Palestine (about 1/3 of the whole territory) retained under the ownership of past Ottoman landlords, mostly powerful Arab clans and local Muslim sheikhs. Other territories had been held by foreign Christian organisations (most notably the Greek Orthodox Church), as well as Jewish private and Zionist organisations, and to lesser degree by small minorities of Bahai's, Samaritans and Circassians.
As of 1931, the territory of the British Mandate of Palestine was 26,625,600 dunams (26,625.6 km2), of which 8,252,900 dunams (8,252.9 km2) or 33% were arable. Official statistics show that Jews privately and collectively owned 1,393,531 dunams (1,393.53 km2) of land in 1945. The Jewish owned agricultural land was largely located in the Galilee and along the coastal plain. Estimates of the total volume of land that Jews had purchased by 15 May 1948 are complicated by illegal and unregistered land transfers, as well as by the lack of data on land concessions from the Palestine administration after 31 March 1936. According to Avneri, Jews held 1,850,000 dunams (1,850 km2) of land in 1947. Stein gives the estimate of 2,000,000 dunams (2,000 km2) as of May 1948.
Nevertheless, the quantity of Jewish owned land is easier to calculate than Arab owned land, which had largely been undocumented. The total volume of land in Mandatory Palestine, owned by Arabs (Muslim, Christian and Druze), is a matter of a great difficulty to account for. The 1945 UN estimation shows that Arab ownership of arable land was on average 68% of a district, ranging from 15% ownership in the Beer-Sheba district to 99% ownership in the Ramallah district.
The following table shows the 1945 land ownership of mandatory Palestine by district:
|Land ownership of Palestine in 1945 by district|
|District||Sub-district||Arab-owned||Jewish-owned||Public / other|
|Data from the Land Ownership of Palestine|
The land owned privately and collectively by Jews, Arabs and other non-Jews can be classified as urban, rural built-on, cultivable (farmed), and uncultivable. The following chart shows the ownership by Jews, Arabs and other non-Jews in each of the categories.
|Land ownership of Palestine (in square kilometres) on 1 April 1943|
|Category||Arab / non-Jewish ownership||Jewish ownership||Total|
|Cereal (not taxable)||900.29||51.05||951.34|
|Data is from Survey of Palestine (Vol II, p566). By the end of 1946, Jewish ownership had increased to 1624 km2.|
In 1920, the majority of the approximately 750,000 people in this multi-ethnic region were Arabic-speaking Muslims, including a Bedouin population (estimated at 103,331 at the time of the 1922 census and concentrated in the Beersheba area and the region south and east of it), as well as Jews (who comprised some 11% of the total) and smaller groups of Druze, Syrians, Sudanese, Circassians, Egyptians, Greeks, and Hejazi Arabs.
A discrepancy between the two censuses and records of births, deaths and immigration, led the authors of the second census to postulate the illegal immigration of about 9,000 Jews and 4,000 Arabs during the intervening years.
There were no further censuses but statistics were maintained by counting births, deaths and migration. Some components such as illegal immigration could only be estimated approximately. The White Paper of 1939, which placed immigration restrictions on Jews, stated that the Jewish population "has risen to some 450,000" and was "approaching a third of the entire population of the country". In 1945, a demographic study showed that the population had grown to 1,764,520, comprising 1,061,270 Muslims, 553,600 Jews, 135,550 Christians and 14,100 people of other groups.
|Average compounded population
growth rate per annum, 1922–1945
The following table gives the demographics of each of the 16 districts of the Mandate in 1945.
|Demographics of Palestine in 1945 by district|
|Data from the Survey of Palestine|
Britain continued the Millet system of the Ottoman Empire whereby all matters of a religious nature and personal status were within the jurisdiction of Muslim courts and the courts of other recognised religions, called confessional communities. The High Commissioner established the Orthodox Rabbinate and retained a modified Millet system which only recognised eleven religious communities: Muslims, Jews and nine Christian denominations (none of which were Christian Protestant churches). All those who were not members of these recognised communities were excluded from the Millet arrangement. As a result, there was no possibility, for example, of marriages between confessional communities, and there were no civil marriages. Personal contacts between communities were nominal.
Between 1922 and 1947, the annual growth rate of the Jewish sector of the economy was 13.2%, mainly due to immigration and foreign capital, while that of the Arab was 6.5%. Per capita, these figures were 4.8% and 3.6% respectively. By 1936, the Jewish sector earned 2.6 times as much as Arabs. Compared to other Arab countries, the Palestinian Arab individuals earned slightly more.
On the scale of the UN Human Development Index determined for around 1939, of 36 countries, Palestinian Jews were placed 15th, Palestinian Arabs 30th, Egypt 33rd and Turkey 35th. The Jews in Palestine were mainly urban, 76.2% in 1942, while the Arabs were mainly rural, 68.3% in 1942. Overall, Khalidi concludes that Palestinian Arab society, while overmatched by the Yishuv, was as advanced as any other Arab society in the region and considerably more than several.
Under the British Mandate, the country developed economically and culturally. In 1919 the Jewish community founded a centralised Hebrew school system, and the following year established the Assembly of Representatives, the Jewish National Council and the Histadrut labour federation. The Technion university was founded in 1924, and the Hebrew University of Jerusalem in 1925.
Literacy rates in 1932 were 86% for the Jews against 22% for the Palestinian Arabs, but Arab literacy steadily increased. Palestinian Arabs compared favourably to Egypt and Turkey, but unfavourably to Lebanon.
Field Marshall Allenby entering Jerusalem with British troops on 11 December 1917
General Watson meeting with the Mayor of Jerusalem in December 1917
The surrender of Jerusalem by the Ottomans to the British on 9 December 1917 following the Battle of Jerusalem
Main post office, Jaffa Road, Jerusalem
Main post office, Jaffa
Western Wall, 1933
Supreme Military Tribunal of the British Mandate, Kiryat Shmuel, Jerusalem
"Bevingrad" in Jerusalem, Russian Compound behind barbed wire
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