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BICOM Briefing the Balfour Declaration: Origins and Impact BICOM Briefing The Balfour Declaration: Origins and Impact BICOM Research Team November 2016 Key points: establishment of a Jewish national home in Palestine, became binding in international • Zionism, the name given to the national law following the 1920 San Remo Conference, liberation movement of the Jewish people, and the 1922 British Mandate from the emerged in Europe at the end of 19th century League of Nations. As the Mandate drew to and called for the establishment of a Jewish a close, Jewish statehood was granted by UN homeland in the Land of Israel / Palestine. General Assembly (UNGA) Resolution 181 – By 1917, when the Balfour Declaration (the which recommended partitioning Mandatory Declaration) was published, Zionism had Palestine into separate Jewish and Arab cross-party support in Britain as well as states – and reinforced by the State of Israel’s government backing in France, America, and acceptance into the family of nations following other countries, while the pending defeat of its 1948 War of Independence. the Ottoman Empire – which had controlled that geographic area for the previous four • While the Declaration constituted an hundred years – provided an opportunity important component in facilitating Jewish for British politicians to translate their immigration and creating the legal basis for ideological support for Zionism into practice. the establishment of the State of Israel, it In that period, the Zionist movement’s call for did not make such a homeland inevitable. statehood was but one of many nationalist In fact, primarily motivated by an attempt to movements – such as the Arab, Turkish, satisfy Arab opposition to Zionism, British Armenian, and Kurdish – which saw the White Papers in the 1920s and 1930s severely collapse of empires as an opportunity to limited Jewish immigration and threatened achieve self-determination. the viability of Jewish statehood. Any analysis of Britain’s role in the establishment of Israel • The Declaration neither signalled the start should thus include both the Declaration – of a Jewish return to the Land of Israel / which encouraged Jewish immigration – and Palestine nor mass immigration to it. Jews the numerous White Papers which restricted it. had enjoyed a continuous presence in the area for centuries before the destruction of the • Britain’s role in the Middle East in the Second Jewish Temple in 70 CE, and by the decades following the First World War was time of the Declaration approximately 80,000- highly significant. But the history of the 90,000 Jews already lived in Palestine without Declaration, the years of the British Mandate the assistance of any external power. and the establishment of the State of Israel are complex and any assessment of Britain’s role • Despite opposition among many locals to needs to take that into consideration. Jewish immigration, some Middle Eastern leaders welcomed Zionism. As Emir Faisal ibn Husain, leader of the Arab delegation at Introduction the Paris Peace Conference wrote, the Arabs “look with the deepest sympathy on the • The Balfour Declaration was the British Zionist movement” seeing it as helping their government’s pledge to help the Jewish own people’s quest for self-determination. community build a national home in Palestine and took the form of a letter penned on 2 • The Declaration itself was not a legal November 1917 by British Foreign Minister document but the policy it expressed, the Lord Balfour to Lord Rothschild, then serving 1 as the honorary president of the Zionist The Ottoman Empire’s defeat and Allied Federation of Great Britain and Ireland. In it, support for Zionism Balfour wrote that “His Majesty’s Government view with favour the establishment in Palestine • The role of British as well as Australian and New of a national home for the Jewish people, and Zealand (ANZAC) military forces in capturing will use their best endeavours to facilitate the Palestine from the Ottomans was a key factor achievement of this object, it being clearly as to why the British, rather than another understood that nothing shall be done which country, publicly declared their support for a may prejudice the civil and religious rights of Jewish national home in Palestine. However existing non-Jewish communities in Palestine the establishment of a Jewish homeland in or the rights and political status enjoyed by Palestine was not solely a British policy but Jews in any other country.” was also clearly supported by policy-makers from France, Italy, Russia and the US. • Controversy continues to surround the issue almost 100 years on, with supporters of Israel • France was the first of the Allied powers to celebrating it and Palestinians viewing it recognise the Jews as a distinct nationality as a criminal act. The Palestine Liberation with French Foreign Minister Jules Cambon Organisation (PLO) recently raised the idea of writing to Zionist leader Nahum Solokow in suing the British government, and a year-long June 1917 that “it would be a deed of justice campaign has been formally launched calling and of reparation to assist by the protection of on Britain to atone for what is described as the Allied Powers, in the renaissance of the the “big crime Britain committed against the Jewish nationality in that Land from which Palestinian people”. In July 2016, Palestinian the people of Israel were exiled so many Authority (PA) Minister Riyad al-Malki told centuries ago”. In October 1917, US President Arab League leaders that the Declaration Woodrow Wilson also expressed his support “gave people who don’t belong there [the for Zionism, approving a draft text of the Jews] something that wasn’t theirs”. Declaration which he saw as a natural fit to his “New Diplomacy” that stressed national self- • Historians have offered numerous reasons to determination and democratic governance. explain the issuance of the Declaration. These In 1922 US Congress adopted a resolution range from trying to secure British control over declaring that a “national home for the Jewish a strategically important area near the Suez people” be established in Palestine. Canal; preventing the German government from establishing its own relationship with • Within Britain, it was the Labour Party the Zionist movement; the hope that the that first publicly supported the Jewish Zionist movement in Russia would persuade return to Palestine. Three months prior to their government to remain on the Allies’s the Declaration, the Party’s new post war side in the First World War; Prime Minister guidelines stated that “Palestine should be set David Lloyd George’s personal belief that free from the harsh and oppressive government the Jews could provide better governance of the Turk, in order that this country may form than the Arab inhabitants, and his religious a Free State, under international guarantee, belief that facilitating a Jewish return to the to which such of the Jewish people as desire Holy Land was following God’s plan; the to do so may return, and may work out their diplomatic activity and skill of Zionist leader salvation free from interference by those of Chaim Weizmann; and the argument that alien race or religion”. Moreover, on the eve of wartime Britain and post-war Zionism shared the San Remo Conference, the Labour Party identical interests and saw the Declaration as neutralised attempts by left-wing groups the “stepping stone” each needed to achieve within the Party to identify Zionism with their aims. British imperialism by giving its unqualified backing to Zionism. In a letter to Lloyd • Moving beyond the historical debate George, the Labour Party urged acceptance of about motivations, this paper analyses the the Mandate for Palestine “with a view of its Declaration in its historical context, critically being reconstituted as the national home of assessing its significance, and evaluating the the Jewish people”. extent to which it set the foundations for the establishment of the State of Israel in 1948. • The Ottoman Empire (of which Palestine was a part) entered and was subsequently defeated 2 in the First World War, which allowed Britain • Despite opposition among some locals to change its rhetorical sympathy for Zionism to Jewish immigration, Zionism was not towards active support for it. At that time, the inherently antithetical to the Arab leadership, Zionist movement’s call for statehood was one of and some viewed it as helping their own quest many nationalist movements – such as the Arab, for self-determination. The clearest evidence Turkish, Armenian, and Kurdish – who saw the of Arab understanding for Zionism appears end of empires as an opportunity to achieve self- in the Weizmann-Faisal Agreement signed in determination in their own homelands. London in 1919 on the eve of the Post-First World War Paris Peace Conference between Chaim Weizmann and Emir Faisal ibn Husain, Palestine before and after the First World War the leader of the Arab delegation to the Conference. The Agreement’s preamble stated • The Declaration neither signalled the start the “racial kinship and ancient bonds existing of a Jewish return to the Land of Israel / between the Arabs and the Jewish people” Palestine nor mass immigration to it. Jews as well as the realisation that “the surest had enjoyed a continuous presence in the means of working out the consummation area for centuries before the destruction of their natural aspirations is through of the Second Jewish Temple in 70 CE and the closest possible collaboration in the even after much of the population was development of the Arab State and Palestine”. expelled in the first and second century by Furthermore, the Agreement echoed the the Romans, Jews remained in the land and aims of the Declaration whereby each party achieved major cultural achievements, such committed all measure “to encourage and as the compilation of the fourth-century stimulate immigration of Jews into Palestine Jerusalem Talmud, and the establishment of on a large scale”.
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