The Hundred Years War on Palestine - Rashid Khalidi

To fully appreciate the particularly destructive force of the Mandate for Palestinians, it is worth returning to Article 22 of the Covenant of the League of Nations and looking at a confidential memo written by Lord Balfour in September 1919. For areas formerly part of the Ottoman Empire, Article 22 ("provisionally") recognized their "existence as independent nations." The background to this article in relation to the Middle East involved repeated British promises of independence to all the Arabs of the Ottoman domains during World War I in return for their support against the Ottomans, as well as the self-determination proclaimed by Woodrow Wilson. Indeed, all the other mandated territories in the Middle East ultimately won independence (although both mandatory powers, Britain and France, twisted the rules to maintain the maximum degree of control for the longest possible time).

Only the Palestinians were denied these advantages, while representative institutions and progress toward self-rule were obtained by the Jewish population in Palestine, which benefited uniquely from Article 22 of the covenant. For decades, British officials disingenuously but steadfastly maintained that Palestine had been excluded from wartime promises of Arab independence. However when relevant extracts from the Husayn-McMahon correspondence were revealed for the first time in 1938, the British government was forced to admit that the language used was at the very least ambiguous.43

As we have seen, one of the officials most deeply involved in depriving Palestinians of their rights was Britain's foreign secretary, Lord Arthur Balfour. A diffident, worldly patrician and former prime minister and nephew of long-time Tory Prime Minister Lord Salisbury, he had served for five years as Britain's chief secretary in Ireland, the empire's oldest colony, where he was much hated, earning the nickname "Bloody Balfour."44

Ironically, it was his government that authored the 1905 Aliens Act, meant primarily to keep destitute Jews fleeing tsarist pogroms out of Britain. A confirmed cynic, he nevertheless held a few beliefs, one of which was the utility to the British Empire, and the moral rightness, of Zionism, a cause to which he was enlisted by Chaim Weizmann. In spite of this belief, Balfour was clear-eyed regarding the implications of his government's actions that others preferred to pretend did not exist.

In a confidential September 1919 memo (not publicly known until its publication over three decades later in a collection of documents on the interwar period45), Balfour set out for the cabinet his analysis of the complications Britain had created for itself in the Middle East as a result of its conflicting pledges. On the multiple contradictory commitments of the Allies-including those embodied in the Husayn-McMahon correspondence, the Sykes-Picot Agreement, and the Covenant of the League of Nations-Balfour was scathing. After summarizing the incoherence of British policy in Syria and Mesopotamia, he bluntly assessed the situation in Palestine:

The contradiction between the letter of the Covenant and the policy of the Allies is even more flagrant in the case of the "independent nation" of Palestine than in that of the "independent nation" of Syria. For in Palestine we do not propose even to go through the form of consulting the wishes of the present inhabitants of the country.… The four Great Powers are committed to Zionism. And Zionism, be it right or wrong, good or bad, is rooted in age-long traditions, in present needs, in future hopes, of far profounder import than the desires and prejudices of the 700,000 Arabs who now inhabit that ancient land.

In my opinion that is right. What I have never been able to understand is how it can be harmonised with the declaration, the Covenant, or the instructions to the Commission of Enquiry. I do not think that Zionism will hurt the Arabs; but they will never say they want it. Whatever be the future of Palestine it is not now an "independent nation," nor is it yet on the way to become one. Whatever deference should be paid to the views of those who live there, the Powers in their selection of a mandatory do not propose, as I understand the matter, to consult them. In short, so far as Palestine is concerned, the Powers have made no statement of fact which is not admittedly wrong, and no declaration of policy which, at least in the letter, they have not always intended to violate.

In this brutally frank summary, Balfour set the high-minded "age-long traditions," "present needs," and "future hopes" embodied in Zionism against the mere "desires and prejudices" of the Arabs in Palestine, "who now inhabit that ancient land," implying that its population was no more than transient. Echoing Herzl, Balfour airily claimed that Zionism would not hurt the Arabs, yet he had no qualms about recognizing the bad faith and deceit that characterized British and Allied policy in Palestine. But this is of no matter. The remainder of the memo is a bland set of proposals for how to surmount the obstacles created by this tangle of hypocrisy and contradictory commitments. The only two fixed points in Balfour's summary are a concern for British imperial interests and a commitment to provide opportunities for the Zionist movement. His motivations were of a piece with those of most other senior British officials involved in crafting Palestine policy; none of them were as honest about the implications of their actions.