The World of the Roosevelts Published in Cooperation with the Franklin and Eleanor Roosevelt Institute Hyde Park, New York Series Editor: David B

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The World of the Roosevelts Published In Cooperation with The Franklin and Eleanor Roosevelt Institute Hyde Park, New York Series Editor: David B. Woolner General Editors: William E. Leuchtenburg, William vanden Heuvel, and Douglas Brinkley

FDR AND HIS CONTEMPORARIES PEARL HARBOR REVISITED Foreign Perceptions of an American Edited by Robert W. Love, Jr. President Edited by Cornelis A. van Minnen and FDR AND THE HOLOCAUST John F. Sears Edited by Verne W. Newton

NATO: THE FOUNDING OF THE UNITED STATES AND THE THE ATLANTIC ALLIANCE AND INTEGRATION OF EUROPE THE INTEGRATION OF EUROPE Legacies of the Postwar Era Edited by Francis H. Heller and John R. Edited by Francis H. Heller and Gillingham John R. Gillingham

AMERICA UNBOUND ADENAUER AND KENNEDY World War II and the Making of a A Study in German-American Relations Superpower Frank A. Mayer Edited by Warren F. Kimball THEODORE ROOSEVELT AND THE ORIGINS OF U.S. NUCLEAR THE BRITISH EMPIRE STRATEGY, 1945–1953 A Study in Presidential Statecraft Samuel R. Williamson, Jr. and Steven L. William N. Tilchin Rearden TARIFFS, TRADE AND EUROPEAN AMERICAN DIPLOMATS IN THE INTEGRATION, 1947–1957 NETHERLANDS, 1815–50 From Study Group to Common Market Cornelis A. van Minnen Wendy Asbeek Brusse EISENHOWER, KENNEDY, AND THE UNITED STATES OF EUROPE SUMNER WELLES Pascaline Winand FDR’s Global Strategist A Biography by Benjamin Welles ALLIES AT WAR The Soviet, American, and British THE NEW DEAL AND PUBLIC Experience, 1939–1945 POLICY Edited by David Reynolds, Warren F. Edited by Byron W. Daynes, Kimball, and A. O. Chubarian William D. Pederson, and Michael P. Riccards THE ATLANTIC CHARTER Edited by Douglas Brinkley and David R. WORLD WAR II IN EUROPE Facey-Crowther Edited by Charles F. Brower FDR AND THE U.S. NAVY ROOSEVELT AND FRANCO DURING Edward J. Marolda THE SECOND WORLD WAR From the Spanish Civil War to Pearl Harbor THE SECOND QUEBEC Joan Maria Thomàs CONFERENCE REVISITED Edited by David B. Woolner HARRY HOPKINS Sudden Hero, Brash Reformer THEODORE ROOSEVELT, June Hopkins THE U.S. NAVY, AND THE SPANISH-AMERICAN WAR ELEANOR ROOSEVELT AND Edited by Edward J. Marolda ADLAI STEVENSON Richard Henry FDR, THE VATICAN, AND THE ROMAN CATHOLIC CHURCH IN GEORGE C. MARSHALL AMERICA, 1933–1945 Servant of the American Nation Edited by David B. Woolner and Edited by Charles F. Brower Richard G. Kurial ROOSEVELT, FRANCO, AND FDR AND THE ENVIRONMENT THE END OF THE SECOND Edited by Henry L. Henderson and WORLD WAR David B. Woolner Joan Maria Thomàs

VAN LOON: POPULAR FDR AND INTERNATIONAL CIVIL HISTORIAN, JOURNALIST, AVIATION AND FDR CONFIDANT Flying Strong, Flying Free Cornelis A. van Minnen Alan P. Dobson

FRANKLIN ROOSEVELT’S THE DIPLOMATIC EDUCATION FOREIGN POLICY AND OF FRANKLIN D. ROOSEVELT, THE WELLES MISSION 1882–1933 J. Simon Rofe Graham Cross

FDR’S WORLD FDR AND THE END OF EMPIRE War, Peace, and Legacies The Origins of American Power in the Edited by David B. Woolner, Warren F. Middle East Kimball, and David Reynolds Christopher D. O’Sullivan FDR and the End of Empire The Origins of American Power in the Middle East

CHRISTOPHER D. O’SULLIVAN FDR AND THE END OF EMPIRE Copyright © Christopher D. O’Sullivan, 2012. Softcover reprint of the hardcover 1st edition 2012 978-1-137-02524-1 All rights reserved. First published in 2012 by PALGRAVE MACMILLAN® in the United States—a division of St. Martin’s Press LLC, 175 Fifth Avenue, New York, NY 10010. Where this book is distributed in the UK, Europe and the rest of the world, this is by Palgrave Macmillan, a division of Macmillan Publishers Limited, registered in England, company number 785998, of Houndmills, Basingstoke, Hampshire RG21 6XS. Palgrave Macmillan is the global academic imprint of the above companies and has companies and representatives throughout the world. Palgrave® and Macmillan® are registered trademarks in the United States, the United Kingdom, Europe and other countries. ISBN 978-1-349-43885-3 ISBN 978-1-137-02525-8 (eBook) DOI 10.1057/9781137025258 Library of Congress Cataloging-in-Publication Data is available from the Library of Congress. A catalogue record of the book is available from the British Library. Design by Newgen Imaging Systems (P) Ltd., Chennai, India. First edition: October 2012 10 9 8 7 6 5 4 3 2 1 For Maeve Previous Publications Colin Powell: A Political Biography (2010) Sumner Welles: Postwar Planning and the Quest for a New World Order (2008) The United Nations: A Concise History (2005) Contents

Acknowledgments ix

Introduction: A New Deal for the Middle East 1 1. FDR and the End of Empire in the Middle East 11 2. Iraq Between Two Empires: Great Britain, Arab Nationalism, and the Origins of American Power 27 3. The New Deal on the Nile: Challenging British Power in Egypt 49 4. Iran: “A Testing Ground for the Atlantic Charter” 69 5. FDR and Saudi Arabia: Forging a Special Relationship 89 6. Palestine: The Paradox of Self-Determination 105 7. FDR’s Road to Damascus: The United States, the Free French, and American “Principles on Trial” in the Levant 127 Conclusion: Sowing the Dragon’s Teeth: Th e Origins of American Empire in the Middle East 147

Notes 155 Bibliography 197 Index 203 Acknowledgments

This book would never have been possible without the support and encouragement of a number of people. I am grateful to David Woolner, executive director of the Franklin and Eleanor Roosevelt Institute, for sug- gesting the book for the World of the Roosevelts series. The editorial team at Palgrave Macmillan, particularly my editor Chris Chappell, as well as Sarah Whalen and Joel Breuklander, have all deftly steered me through the publication process. Sumathi R. Ellappan also provided copyediting expertise. Several institutions afforded me critical support. The Fulbright program and the Jordanian-American Commission for Educational Exchange, and, in particular, their executive director, Alain McNamara, provided research support and created an environment for scholarship and fellowship during my recent year at the University of Jordan. The American Historical Association’s National History Center and its founding director, William Roger Louis, generously granted me their decolonization summer fellowship for work at the National Archives and the Manuscript Division of the Library of Congress. I am much obliged to all of the members of the summer seminar but particularly Jason Parker, Mairi MacDonald, and Pillarisetti Sudhir. The Center for International Studies at the London School of Economics provided me with a visiting fellowship to conduct research in the British National Archives. I am indebted to their director, John Kent, for sharing his perspectives about the end of empire in the Middle East and for first sparking my interest in the topic during his lively Middle East seminar. The Franklin and Eleanor Roosevelt Institute granted me the Isador Lubin- John Winant research fellowship for work in the archives at the Franklin D. Roosevelt Presidential Library, where I was assisted by their fabulous team at Hyde Park, led by the incomparable Bob Clark and his unstintingly help- ful archivists including Sarah Malcolm, Mark Renovitch, Matt Hanson, Virginia Lewick, Robert Parks and Karen Anson. Finally, the Andrew Mellon Foundation furnished me with a generous research grant for exploration of archives in Washington, DC, and London. My student research assistants, Sarah Reinheimer, Steve Schulz, Rylan Albright, Elizabeth Moorhatch, and x Acknowledgments

Ross Psyhogios deserve special mention for their enthusiasm and support, as do friends and colleagues at the University of San Francisco such as Cheryl Czekala, Tony Fels, Mike Stanfield, Marty Clausen, and Elliot Neaman; as well as friends from the University of Jordan, particularly Reem Dababneh, Eileen and Ed Lundy, Hala Abu Taleb, and Manaf Damluji (who shared with me his fascinating insights about the British and the American experi- ences in Iraq). Many others have assisted in innumerable ways, including supportive friends and family such as Barbara Sutro Ziegler, Ellen and Pip Danby, Ali Tuysuz, Patricia al-Ani, Tom Belton, Kendis Camacho, Erika Spears, Sean Hasson, Paddy and Ursula O’Kane, Mike and Gail Lynch, Shoka Marefat, Beth Klein, Natalie Kamajian, Sarah Goss, Susan Goss, Gary Goss, Arthur Rosenthal, Richard Andolsen, John Devincenzi, Monica Dunne, Mary Madden, Michael McGandy, Alonzo O’Sullivan and Saundra Livesay. My father and fellow historian, Gen. Curtis “Hoop” O’Sullivan, who served in the US Army in North Africa and the Middle East during the period covered in this book, offered his customary remarkable observa- tions. And, finally, I am forever grateful to Maeve, to whom this book is dedicated, who always went the extra mile, from Istanbul to Cairo, with Amman, Damascus, Jerusalem, and Beirut in between, without complaint and always with a smile.