|Report of the Palestine Royal Commission|
Peel Commission Partition Plan, July 1937
|Ratified||7 July 1937|
|Purpose||Investigation of the Causes of the 1936–39 Arab revolt in Palestine|
The Peel Commission, formally known as the Palestine Royal Commission, was a British Royal Commission of Inquiry, headed by Lord Peel, appointed in 1936 to investigate the causes of unrest in Mandatory Palestine, which was administered by Britain, following the six-month-long Arab general strike in Mandatory Palestine.
On July 7, 1937, the commission published a report that, for the first time, stated that the League of Nations Mandate had become unworkable and recommended partition. The British cabinet endorsed the Partition plan in principle, but requested more information. Following the publication, in 1938 the Woodhead Commission was appointed to examine it in detail and recommend an actual partition plan.
The Arabs opposed the partition plan and condemned it unanimously, as it would give the Jews the "best land in all of Palestine... including 82% of all citrus production in the country, Arab and Jewish". Citrus was Palestine's most valuable crop and principal export. In the land that was proposed to constitute the Jewish state, Arab ownership was four times that of Jews, including Galilee in which 98% of the land proposed to be under Jewish control was Arab owned. Further, the Arab areas would not be independent, they were to be united with Trans-Jordan under King Abdullah's control. However, the Arabs were offered valuable areas to the east of Jordan, the Southern portion of the Beisan sub-district where irrigation would have been possible, the town of Jaffa, and an extension of the area south of Jaffa-Tel Aviv. The Arabs objected to the principle of awarding territory to the Jews and demanded that the UK keep its old promise of an independent Arab state. They argued that the creation of a Jewish state and lack of independent Palestine was a betrayal of British word.
The Jewish leadership accepted partition with mixed feelings as an opportunity for sovereignty. However, some historians note that in a letter to his son in October 1937, David Ben-Gurion wrote that "A Jewish state must be established immediately, even if it is only in part of the country. The rest will follow in the course of time. A Jewish state will come." The same sentiment was recorded by Ben-Gurion on other occasions, such as at a meeting of the Jewish Agency executive in June 1938, as well as by Chaim Weizmann.
The Commission was established at a time of increased violence; serious clashes between Arabs and Jews broke out in 1936 and were to last three years. On 11 November 1936, the commission arrived in Palestine to investigate the reasons behind the uprising. The Commission was charged with determining the cause of the riots, and judging the grievances of both sides. Chaim Weizmann made a speech on behalf of the Jews. On 25 November 1936, testifying before the Peel Commission, Weizmann said that there are in Europe 6,000,000 Jews ... "for whom the world is divided into places where they cannot live and places where they cannot enter."
The Mufti of Jerusalem, Hajj Amin al-Husseini, testified in front of the commission, opposing any partition of Arab lands with the Jews. He demanded full cessation of Jewish immigration. Although the Arabs continued to boycott the Commission officially, there was a sense of urgency to respond to Weizmann's appeal to restore calm. The former Mayor of Jerusalem Ragheb Bey al-Nashashibi—who was the Mufti's rival in the internal Palestinian arena, was thus sent to explain the Arab perspective through unofficial channels.
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The causes of the Arab rebellion that broke out in the previous year were judged to be
[F]irst, the desire of the Arabs for national independence; secondly, their antagonism to the establishment of the Jewish National Home in Palestine, quickened by their fear of Jewish domination. Among contributory causes were the effect on Arab opinion of the attainment of national independence by ‘Iraq, Trans-Jordan, Egypt, Syria and the Lebanon; the rush of Jewish immigrants escaping from Central and Eastern Europe; the inequality of opportunity enjoyed by Arabs and Jews respectively in placing their case before Your Majesty’s Government and the public; the growth of Arab mistrust; Arab alarm at the continued purchase of Arab land by the intensive character and the "modernism" of Jewish nationalism; and lastly the general uncertainty, accentuated by the ambiguity of certain phrases in the Mandate, as to the ultimate intentions of the Mandatory Power.
The Commission found that the drafters of the Mandate could not have foreseen the advent of massive Jewish immigration, that they considered due to "drastic restriction of immigration into the United States, the advent of the National Socialist Government in Germany in 1933 and the increasing economic pressure on the Jews in Poland." They wrote that "The continued impact of a highly intelligent and enterprising race, backed by large financial resources, on a comparatively poor indigenous community, on a different cultural level, may produce in time serious reactions."
The Commission found that "though the Arabs have benefited by the development of the country owing to Jewish immigration, this has had no conciliatory effect. On the contrary, improvement in the economic situation in Palestine has meant the deterioration of the political situation". Addressing the "Arab charge that the Jews have obtained too large a proportion of good land cannot be maintained," noting that "Much of the land now carrying orange groves was sand dunes or swamp and uncultivated when it was purchased." They write that "The shortage of land is, we consider, due less to the amount of land acquired by Jews than to the increase in the Arab population". "Endeavours to control the alienation of land by Arabs to Jews have not been successful. In the hills there is no more room for further close settlement by Jews; in the plains it should only be allowed under certain restrictions."
The Commission stated that Government have attempted to discharge the contradictory obligations of the Mandatory under conditions of great difficulty by "holding the balance" between Jews and Arabs. Repeated attempts to conciliate either race have only increased the trouble. The situation in Palestine has reached a deadlock. Development of local autonomy and selfgoverning institutions, this also has been hampered.
The summary report statement concerning the possibility of lasting settlement states:
An irrepressible conflict has arisen between two national communities within the narrow bounds of one small country. There is no common ground between them. Their national aspirations are incompatible. The Arabs desire to revive the traditions of the Arab golden age. The Jews desire to show what they can achieve when restored to the land in which the Jewish nation was born. Neither of the two national ideals permits of combination in the service of a single State.
The Commission reached the conclusion that the Mandate had become unworkable and must be abolished. In favor of partition, as the only solution to the Arab-Jewish "deadlock". It outlined ten points on: a Treaty system between the Arab and Jewish States and the new Mandatory Government; a Mandate for the Holy places; the frontiers; the need for Inter-State Subvention; the need for British Subvention; tariffs and ports; nationality; civil service; Industrial concessions; and the Exchange of land and populations.
A Treaty system based on the Iraqi-Syrian precedent, proposed: Permanent mandates for the Jerusalem area and "corridor" stretching to the Mediterranean coast at Jaffa—and the land under its authority (and accordingly, the transfer of both Arab and Jewish populations) be apportioned between an Arab and Jewish state. The Jewish side was to receive a territorially smaller portion in the mid-west and north, from Mount Carmel to south of Be'er Tuvia, as well as the Jezreel Valley and the Galilee, while the Arab state linked with Trans-Jordan was to receive territory in the south and mid-east which included Judea, Samaria, and the sizable Negev desert.
The report stated that Jews contribute more per capital to the revenues of Palestine than the Arabs, and the Government has thereby been enabled to maintain public services for the Arabs at a higher level than would otherwise have been possible. Partition would mean, on the one hand, that the Arab Area would no longer profit from the taxable capacity of the Jewish Area. On the other hand, (1) the Jews would acquire a new right of sovereignty in the Jewish Area; (2) that Area, as we have defined it, would be larger than the existing area of Jewish land and settlement; (3) the Jews would be freed from their present liability for helping to promote the welfare of Arabs outside that Area. It is suggested, therefore, that the Jewish State should pay a subvention to the Arab State when Partition comes into effect. Citing the separation of Sind from Bombay and of Burma from the Indian Empire, as precedents for such financial arrangement.
The report stated that if Partition is to be effective in promoting a final settlement it must mean more than drawing a frontier and establishing two States. Sooner or later there should be a transfer of land and, as far as possible, an exchange of population. Citing as precedent the 1923 Greek and Turkish exchange, which addressed the constant friction between their minorities. While noting the absence of cultivable land to resettle the Arabs, which would necessitate the execution of large-scale plans for irrigation, water-storage, and development in Trans-Jordan, Beersheba and the Jordan Valley. The population exchange, if carried out, would have involved the transfer of up to 225,000 Arabs and 1,250 Jews.
The Arab reaction
The Arab leaders, both in the Husseini-controlled Arab Higher Committee and in the Nashashibi National Defense Party denounced partition and reiterated their demands for independence, arguing that the Arabs had been promised independence and granting rights to the Jews was a betrayal. The Arabs emphatically rejected the principle of awarding any territory to the Jews. With the Arab Higher Committee also lobbying, hundreds of delegates from across the Arab world convened at the Bloudan Conference in Syria on 8 September and wholly rejected both the partition and establishment of a Jewish state in Palestine.
The Jewish reaction
On 20 August 1937, the Twentieth Zionist Congress expressed that at the time of the Balfour Declaration it was understood, that the Jewish National Home was to be established in the whole of historic Palestine, including Trans-Jordan, and that inherent in the Declaration was the possibility of the evolution of Palestine into a Jewish State.
While some factions at the Congress supported the Peel Report, arguing that later the borders could be adjusted, others opposed the proposal because the Jewish State would be too small. The Congress decided to reject the specific borders recommended by the Peel Commission, but empowered its executive to negotiate a more favorable plan for a Jewish State in Palestine. In the wake of the Peel Commission the Jewish Agency set up committees to begin planning for the state. At the time, it had already created a complete administrative apparatus amounting to "a Government existing side by side with the Mandatory Government."
At the same Zionist Congress, David Ben-Gurion, then chairman of the executive committee of the Jewish Agency for Palestine, told those in attendance that, though "there could be no question...of giving up any part of the Land of Israel,... it was arguable that the ultimate goal would be achieved most quickly by accepting the Peel proposals." University of Arizona professor Charles D. Smith suggests that, "Weizmann and Ben-Gurion did not feel they had to be bound by the borders proposed [by the Peel Commission]. These could be considered temporary boundaries to be expanded in the future." Ben-Gurion saw the plan as only a stage in the realisation of a larger Jewish state.
The two main Jewish leaders, Chaim Weizmann and Ben-Gurion had convinced the Zionist Congress to approve equivocally the Peel recommendations as a basis for more negotiation. Ben-Gurion wrote: "The compulsory transfer of the Arabs from the valleys of the proposed Jewish state could give us something which we have never had, even when we stood on our own during the days of the First and Second Temples: [a Galilee almost free of non-Jews]. ... We are being given an opportunity which we never dared to dream of in our wildest imagination. This is more than a state, government, and sovereignty—this is a national consolidation in a free homeland. ... if because of our weakness, neglect or negligence, the thing is not done, then we will have lost a chance which we never had before, and may never have again".
Ben-Gurion wrote 20 years later: "Had partition [referring to the Peel Commission partition plan] been carried out, the history of our people would have been different and six million Jews in Europe would not have been killed—most of them would be in Israel".
The Peel Plan proved to be the master partition plan, on which all those that followed were either based, or to which they were compared, ushering in a fundamental change in the British outlook on Palestine's future.
Following the report publication the British Government released a statement of policy, agreeing with its conclusions and proposing to seek from the League of Nations authority to proceed with a plan of partition. In March 1938, the British appointed the Woodhead Commission to "examine the Peel Commission plan in detail and to recommend an actual partition plan". The Woodhead Commission considered three different plans, one of which was based on the Peel plan. Reporting in 1938, the Commission rejected the Peel plan primarily on the grounds that it could not be implemented without a massive forced transfer of Arabs (an option that the British government had already ruled out). With dissent from some of its members, the Commission instead recommended a plan that would leave the Galilee under British mandate, but emphasised serious problems with it that included a lack of financial self-sufficiency of the proposed Arab State. The British Government accompanied the publication of the Woodhead Report by a statement of policy rejecting partition as impracticable due to "political, administrative and financial difficulties".
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On 25 November 1936, testifying before the Peel Commission, Weizmann said that there are in Europe 6,000,000 Jews ... "for whom the world is divided into places where they cannot live and places where they cannot enter."
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p. 11 "while the Zionist movement, after much agonising, accepted the principle of partition and the proposals as a basis for negotiation"; p. 49 "In the end, after bitter debate, the Congress equivocally approved –by a vote of 299 to 160 – the Peel recommendations as a basis for further negotiation.
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