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The League of Nations and the Refugees from Nazi Germany : James G Th e League of Nations and the Refugees from Nazi Germany Th e League of Nations and the Refugees from Nazi Germany James G. McDonald and Hitler’s Victims G r e g B u r g e s s BLOOMSBURY ACADEMIC Bloomsbury Publishing Plc 50 Bedford Square, London, WC1B 3DP, UK BLOOMSBURY, BLOOMSBURY ACADEMIC and the Diana logo are trademarks of Bloomsbury Publishing Plc First published in Great Britain 2016 Paperback edition fi rst published 2018 © Greg Burgess, 2016 Greg Burgess has asserted his right under the Copyright, Designs and Patents Act, 1988, to be identifi ed as Author of this work. Cover design: Sharon Mah Cover image: Two men in long coats walk down a street in the Jewish quarter, Paris, France, 1935. Photo © Fred Stein Archive/ Archive Photos/ Getty Images All rights reserved. No part of this publication may be reproduced or transmitted in any form or by any means, electronic or mechanical, including photocopying, recording, or any information storage or retrieval system, without prior permission in writing from the publishers. Bloomsbury Publishing Plc does not have any control over, or responsibility for, any third-party websites referred to or in this book. All internet addresses given in this book were correct at the time of going to press. The author and publisher regret any inconvenience caused if addresses have changed or sites have ceased to exist, but can accept no responsibility for any such changes. No responsibility for loss caused to any individual or organization acting on or refraining from action as a result of the material in this publication can be accepted by Bloomsbury or the author. A catalogue record for this book is available from the British Library. ISBN: HB: 978-1-4742-7661-0 PB: 978-1-3500-6712-7 ePub: 978-1-4742-7663-4 ePDF: 978-1-4742-7662-7 Library of Congress Cataloging-in-Publication Data Names: Burgess, Greg, 1957– author. Title: The League of Nations and the refugees from Nazi Germany : James G. McDonald and Hitler’s victims / Greg Burgess. Description: London ; New York : Bloomsbury Academic, an imprint of Bloomsbury Publishing Plc, 2016. | Includes bibliographical references and index. Identifi ers: LCCN 2016004383 (print) | LCCN 2016034759 (ebook) | ISBN 9781474276610 (hardback) | ISBN 9781474276627 (PDF) | ISBN 9781474276634 (ePub) | ISBN 9781474276627 (epdf) | ISBN 9781474276634 (epub) Subjects: LCSH: McDonald, James G. (James Grover), 1886–1964. | High Commission for Refugees (Jewish and Other) Coming from Germany–History. | Jewish refugees–Germany–History–20th century. | Politicalrefugees–Germany– History–20th century. | Diplomats–United States–Biography. | Jews–Persecutions–Germany–History–20th century. | Political persecution–Germany–History–20th century. | Germany–Politics and government–1933–1945. | Germany–Emigration and immigration–History– 20th century. | BISAC: HISTORY / Europe / Germany.| HISTORY / Modern / 20th Century. | SOCIAL SCIENCE / Emigration & Immigration. Classifi cation: LCC E748.M1475 B87 2016 (print) | LCC E748.M1475 (ebook) | DDC 943/.004924009043–dc23 LC record available at https://lccn.loc.gov/2016004383 Typeset by Newgen Knowledge Works (P) Ltd., Chennai, India. To fi nd out more about our authors and books visit ww.bloomsbury.com and sign up for our newsletters. C o n t e n t s List of Illustrations vii List of Tables ix List of Abbreviations xi Introduction 1 1 Th e Refugees from Nazism, 1933 13 2 James G. McDonald in Berlin and Geneva 29 3 Th e High Commissioner for Refugees (Jewish and Other) Coming from Germany 47 4 Th e Lausanne Offi ce, December 1933 65 5 Pricking Th eir Conscience: Winter 1933– 34 77 6 A Peaceable and Just Solution 89 7 Plans and Illusions 101 8 Reckoning: Winter 1934– 35 117 9 Mission to South America 127 10 Disillusion: Spring and Summer 1935 135 11 Reform and Resignation 149 1 2 P o s t s c r i p t 161 Conclusion 169 Notes 179 Bibliography 207 Index 217 List of Illustrations 1 James G. McDonald on the deck of the SS Paris on his way to Geneva to assume duties as League of Nations High Commissioner for the Refugees from Germany. United States Holocaust Memorial Museum (November 1933). xii 2 Edgar Algernon Robert Gascoyne- Cecil, Lord Robert Cecil, 1st Viscount Cecil of Chelwood (photographed in the 1930s). National Portrait Gallery, London. xiii 3 Norman Bentwich (photographed in 1950). National Portrait Gallery, London. xiii List of Tables 1.1 Estimated distribution of refugees from Germany, December 1933 23 10.1 Walter Kotschnig’s assessment of the future of refugee resettlement, February 1935 144 10.2 Distribution of the refugees from Germany on 15 July 1935 146 Abbreviations Advocate Richard Breitman, Barbara McDonald Stewart and Severin Hochberg (eds) Advocate for the Doomed: Th e Diaries and Papers of James G. McDonald, 1932– 1935 (Bloomington: Indiana University Press, 2007). Cecil Papers Papers and Manuscripts of Lord Cecil of Chelwood, British Library, London. Leo Baeck Institute Leo Baeck Institute, New York, High Commission for Refugees from Germany Collection, 1933– 1935 (DigiBaeck Digital Archive <www.lbi.org/ digibaeck/ >). LNA League of Nations Archives, Library of the United Nations, Geneva. LNA (HCR) High Commission for Refugees (Jewish and Other) Coming from Germany, Duplicate documents. League of Nations Archives, Library of the United Nations, Geneva. LND League of Nations Documents. LNOJ League of Nations Offi cial Journal . LNOJSS League of Nations Offi cial Journal Special Supplement . McDonald Papers Papers of James G. McDonald. Rare Books and Manuscripts Library, Columbia University, New York. MAE Archives Diplomatique of the French Ministry of Foreign Aff airs (Ministère des Aff aires Étrangers), Paris. NYT Th e New York Times . Refugees and Rescue Richard Breitman, Barbara McDonald Stewart and Severin Hochberg (eds) Refugees and Rescue: Th e Diaries and Papers of James G. McDonald, 1935– 1945 (Bloomington: Indiana University Press, 2009). 1 . James G. McDonald on the deck of the SS Paris on his way to Geneva to assume duties as League of Nations High Commissioner for the Refugees from Germany. United States Holocaust Memorial Museum (November 1933). 2 . Edgar Algernon Robert Gascoyne- Cecil, Lord Robert Cecil, 1st Viscount Cecil of Chelwood (photographed in the 1930s). National Portrait Gallery, London. 3 . Norman Bentwich (photographed in 1950). National Portrait Gallery, London. I n t r o d u c t i o n Th is is a sorry tale to tell. It is a story of failure. Aft er reading the documentary sources of this history many times over, and reviewing the various rewrites of the text presented here, I come away with as much of the same sense of despair as many of the actors in this tale must have felt. One embarks on a history with a sense of hope that by reading the sources, reviewing the events and critically reappraising why things happened the way they did, it might be possible to fi nd some meaning or moral resolution that is uplift ing, that opens up a path by which we can trace something of a nobler humanity within its tragedies of history. 1 Or else, we are left to wallow in miserable stories of victimhood, suff ering, defeat and exile. James G. McDonald’s letter of resignation from his post as League of Nations High Commissioner for the Refugees from Germany in December 1935 might off er something of the former. He called upon gov- ernments to rise above the xenophobia and anti- Semitism in which they were mired, and to defy Nazism and the worst aspects of humanity that it presented to the world. A new way forward, he wrote, could be found in the evolution of justice in European political thought and behaviour, to which the League of Nations was heir and custodian. Th e fact that he had to make this statement at all, however, is evidence enough that the League of Nations and the gov- ernments that constituted it had failed as heirs and custodians of these noble aspirations. Th is history must be told all the same in order to try to understand why the world failed to come to the aid of the victims of Nazism during the Nazis’ fi rst years in power. It reviews the responses to the refugees from Germany in the early 1930s when they fi rst posed a grave humanitarian problem for the govern- ments assembled in the League of Nations. Th ey posed an economic and social burden in countries blighted by economic depression and, many feared, if left to fester, the refugee problem could well have posed a danger to the peace. 2 Th e League of Nations and the Refugees from Nazi Germany Th ose who called for intervention to aid the refugees from Nazism recalled the League’s achievements in the face of the refugee crises that emerged aft er the First World War. Th e measures that the League had adopted for the legal pro- tection of refugees from the Soviet Union and the newly independent states of the Middle East signifi ed the great impact it could have on international aff airs. Its achievements of the 1920s were found in the humanitarian responsibilities it assumed, one major part of which was the new international refugee regime that it was creating. But these ideals did not endure. By 1933, the world seemed exhausted – by economic depression, a resurgent nationalism, the drift towards political extremes, the breakdown of the spirit of international cooperation which the peace settlement and the League of Nations had fostered and, fi nally, the seemingly endless fl ow of exiles, the stateless and the unwanted, all seeking refuge from homelands in dramatic change and turmoil. Th e League, in short, refused to assume responsibility for the refugees from Germany. Th is was in part because it was already moving away from involving itself in the seemingly endless problem of refugees of all backgrounds.
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