In this epochal year of Zionist anniversaries—the 120th of the First Zionist Conference in Basle, the 100th of the Balfour Declaration, the 70th of the 1947 UN Partition Resolution, the 50th of the Six-Day War—there is yet another to be marked: the 80th anniversary of the 1937 British Peel Commission Report, which first proposed a “two-state solution” for Palestine.
The story of the Peel report is largely unknown today, but it is worth retelling for two reasons:
First, it is a historic saga featuring six extraordinary figures, five of whom testified before the commission: on the Zionist side, David Ben-Gurion, Ze’ev Jabotinsky, and Chaim Weizmann, the leaders respectively of the left, right, and center of the Zionist movement; on the Arab side, Haj Amin al-Husseini, the Mufti of Jerusalem; and on the British side, Winston Churchill, who gave crucial testimonyin camera. Louis D. Brandeis, the leading American Zionist, also played a significant role.
Second, and perhaps even more important today, the story helps to explain why, a century after the Balfour Declaration, the Arab-Jewish conflict remains unresolved.
The history and prehistory of the Balfour Declaration has been notably covered in anniversary pieces in Mosaic by Martin Kramer,Nicholas Rostow, Allan Arkush, Colin Shindler, and Douglas J. Feith. In November 1917, as Britain fought the Ottoman Turks in the Middle East during World War I, the British foreign secretary, Arthur Balfour, formally declared British support for “a national home for the Jewish people” in Palestine. The Balfour Declaration, as it came to be known, was issued after extensive consideration by the British cabinet and consultation with Britain’s allies, including the United States, whose president, Woodrow Wilson, approved it in October 1917. In 1922, the League of Nations incorporated it into the Mandate for Palestine that the League entrusted to Britain, and the Declaration thereby became an established part of international law.
The Palestinian Arabs rejected both the Balfour Declaration and the League of Nations Mandate, even after Britain in 1923 severed the larger portion of Palestine, east of the Jordan River, and recognized Emir Abdullah of Transjordan as its new ruler. In 1929, Arabs rioted in Jerusalem, massacred Jews in Hebron and Safed, and attacked Jews elsewhere in the land. In 1936, in a substantial escalation, the Arabs called a general economic strike, sabotaged trains, roads, and telephone lines, engaged in widespread violence against Jews, destroyed their trees and crops, and conducted guerrilla attacks against the British Mandate authorities.
In May 1936, the British announced their intention to establish a commission to “ascertain the underlying causes of the disturbances” and make recommendations for the future. Arab violence continued through October, delaying the arrival in Jerusalem of the commission, led by Lord Peel, until November. While it was on its way, the Arabs declared they would boycott its proceedings.
Recognizing that the future of their national home was at stake, the Jews presented to the commission a major defense of the Zionist cause: a 288-page printed memorandum, together with five appendices, covering the history of Palestine, the legal basis of the Mandate, and the extensive Jewish accomplishments in Palestine in the two decades since the Balfour Declaration. The memorandum emphasized the urgency of the hour—the Nazis had been in power for three years and had stripped German Jews of their civil rights. The memorandum stressed that Jews were “not concerned merely with the assertion of abstract rights” but also with “the pressure of dire practical necessity”:
The conditions now prevailing in Germany are too well known to require lengthy description. . . . But it is not only in Germany that the Jews are living under [such] conditions. . . . About five million Jews . . . are concentrated in certain parts of eastern and southeastern Europe . . . for whom the visible future holds no hope. The avenues of escape are closing. . . . What saves them from despair is the thought [of the Jewish national home].
Weizmann, Ben-Gurion, and Jabotinsky testified before the commission between November 1936 and February 1937. Taken together, their presentations constituted the most forceful and eloquent defense of Zionism since Theodor Herzl convened the First Zionist Congress 40 years earlier. Weizmann’s two-hour presentation was perhaps the finest in his long career as head of the Zionist Organization. The “six million people . . . pent up in places where they are not wanted,” he said, faced a world “divided into places where they cannot live and places into which they cannot enter.” The Jews sought but “one place in the world . . . where we could live and express ourselves in accordance with our character, and make our contribution to civilization in our own way.”
Ben-Gurion’s testimony was, if anything, even more forceful. The rights of the Jews in Palestine, he reminded the commission, were derived not from the Mandate and the Balfour Declaration but from the history chronicled in the Bible:
[T]he Bible is our Mandate, the Bible which was written by us, in our own language, in Hebrew, in this very country. . . . Our right is as old as the Jewish people. It was only the recognition of that right which was expressed in the Balfour Declaration and the Mandate. . . . [We are] re-establishing a thing which we had, which we held, and which was our own during the whole history of the Jewish people.
Jabotinsky’s turn came at the commission’s last public hearing, held in London on February 11, 1937. The London newspapers reported that “hundreds of Jews queued up outside the House of Lords” to hear his testimony, and “more people [were] turned away than could be admitted.” Notables in the audience included William Ormsby-Gore (the new secretary of state for the colonies) and Lady Blanche Dugdale (Lord Balfour’s niece). Jabotinsky, the foremost orator among the Zionists, spoke of the urgent imperative of rescue:
We have got to save millions, many millions. I do not know whether it is a question of re-housing one-third of the Jewish race, half of the Jewish race, or a quarter of the Jewish race . . . but it is a question of millions. . . . It is quite understandable that the Arabs of Palestine would prefer Palestine to be the Arab State No. 4, No. 5, or No. 6—that I quite understand—but when the Arab claim is confronted with our Jewish demand to be saved, it is like the claims of appetite versus the claims of starvation.