The Chatham House Version

and other Middle-Eastern Studies

,
BY THE SAME AUTHOR
England and the Middle East: The Destruction
oJ the Ottoman EmPire
Nationalism
Alghani and.'Abduh: An Essay on Religious Unbeliel and
Political Actiuism in Modern Islam
Nationalism in Asia and Alrica
Arabic Potitical Memoirs and Other Studies
In the Anglo'Arob Labyrinth: the McMahon'Husayn
C orr e s p ond enc e and I t s I nt er pr et ation s, I 9 4- I 3 9
r r

Islam in the ModernWorld and Other Studies

EDITED BY THE SAME AUTHOR

T he Middle.Ea stern EconottY
The lewishWorld
Modern Egy|t (with SYlvia G. Haim)
Topards Modern Iran (with Sylvia G. Haim)
Palestine and. Israel in the rgth and zoth Centuries
(with Sylvia G. Haim)
Zionism and Arabism in Palestine and I srael
(with Sylvia G. Haim)
 The Chatham
Flicuse Version
and other
Middle-Eastern
Studies
ELIE KEDOURIE
With a New Introduction by David Pryce-Jones

5r
IVAN R. DEE
Chicago
THE CHATHA]I HOUSE VERSION AND OTHER IIIDDI.E-E.{STERN
STUDIES.Copyright@r97o,1984b1'ElieKedourie'lntroductioncopyright@
zoo4 by David ir5'ce-Jones.
'I'his book rvas {irst publishcd in r97o antl is here
reprinted by arrangcment s'ith ]Irs. Sylvia Kcdourie' I;irst Ivan R' Dcc
paperback edition published zoo4. All rights rcscrvcd,.including thc right to
ieirodr.. this book or portions thereof in any form. Iior information, addrcss:
Ivan R. Dee, Publisher, 1332 North Halsted strcct, chicago 6o6zz. ]lanufacturcd
in the United States of .\mcrica and printed on acitl-free papcr
Library of Congress Cataloging-in-Publication Data:
Kedourie, Elie.
The Chatham House version and other Jliddle-Eastern studios / Elic
Kedourie ; l'ith a nerv introduction by David Prycc-Jones'
p.cm.
Originally publishcd: Nerv \brk : Praegcr, r97o'
Includes bibliographical refercnces and index'
ISIIN r-s666s-56r-6 (alk. PaPcr)
r. lliddlc East-Historl'-2oth ccntur!: I. Pr1'ce-Jones, David 1936-
II. Title.

DS6z.4.K4 zoo4
2oo3o64633
956.o4-dc22
 Contents

Foreword vll
Introduction to the New Edition ix
Introduction to the zoo4 Edition xiii

r The Middle East and the Powers r

z Cairo and Khartoum on the Arab Question, r9r5-r8 r3

3 The Capture of Damascus, r October r9r8 33

Appendix: PrCcis of the Australian War Diaries 48

4 Sir Herbert Samuel and the Government of Palestine 52

5 Sa'd Zaghlul and the British 8z

6 The Genesis of the Egyptian Constitution of r9z3 r6o

Z EeWt and the Caliphate, ryt1-Sz 177

Appendix: Maraghi's Letter to Wingate 208

8 Pan-Arabism and British Policy 2r3

9 The Kingdom of Iraq: A Retrospect 46

Appendix: A Shi'ite Proclamation 283

IO 'Minorities' 286

II Religion and Politics 3r7

Appendix: 'A Call, to the Arab Chrislians to Join Islam' 343

12 The Chatham House Version 35r

Notes 395

List of Works Cited 463

Index 474
 Foreword

The studies which make up this book - with the exception of the last
one, published here for the first time were originally published in
-
the course of the last seventeen years in The-camir;age
Journal,
Commentary, The Historical, Journa.l,
Journal, of the Royal Asiatic
Sociegt, Middle Eastun Studies, O,ient, The potiticai
Quarterl,y,
st Antony's Papers, and in the volume on political and sociil chaige
in Modern Egpt edited by P. M. Holt. Most of them have now beJn
enlarged, sometimes considerably, to take account of material which
became available after their first publication. I am much obliged to
the various publishers and editors who have kindly allowed..pouti
cation.
I am very grateful to the Librarian of Birmingham University, the
Librarian of the School of oriental Studies, Durham university, the
Librarian of the university of Newcastle, the Librarian of N"*
College, Oxford, and the Librarian of pembroke College, Cambridge,
for allowing me access to the Austen chamberlain papers, the Sudan
Archive including the wingate papers, the Gertrude Bell papers,
and the Ronald Storrs Papers in their respective custod.ies. I would
like also to thank the staff of the public Record Office, London, and,
of the foreign afiairs branch of the National Archives, washington
and the Director and staff of the Israel State Archives,
Jerusalem,
for their ready helpfulness.
Crown copyright records appear by permission of the Controller,
Her Majesty's Stationery Office.
I am indebted to the central Research Fund of the university of
London and to the Government Research Division at the London
School of Economics for making it possible for me to obtain books,
periodicals and documents not available in this country. I am also
particularly indebted to the Warden and Fellows of St Antony,s
College, Oxford, and especially to Mr Albert Hourani for having

vu
 FOREWORD
made possible for me to spend some time at washington in order
it
to consult documents at the National Archives.
It was as a scholar of St Antony's College in r95r-53 that I was
first able to pursue my interest in middle-eastern history; and, in
fact, of the studies republished here, the first which I wrote -now
chapter ro of the book - was written in the College library in the
long vacation of. tg5a. My debt to the College is thus extensive; in
tokin of which I would inscribe these studies to St Antony's'
Lonilon School of Economics, Attgust ry69 E.K.

vlll
Introduction to the New Edition

The twelve studies included in The Chatham House Version relate

to a period when British power and influence in the middle east were
at their most extensive. Thus, many of the episodes and issues con-
sidered here arise out of the British presence in the middle east, and
are examined with the purpose of elucidating the manner in which
this great power and influence were employed, what assumptions
ministers, high officials and military leaders made about middle-eastern
politics and society, what their strategic calculations were, how they
dealt with challenges and emergencies and what, usually unexpected
and undesired, consequences their policies and actions had, both for
British interests and for the countries and the social groups which
these policies and actions affected.
Whether it is British officials in Cairo and Khartoum seeking to
build a regional policy on Sharif Husain and his sons; or Allenby pro-
hibiting his troops from entering Damascus in order that the Sharifians
should claim to have conquered it themselves; or Samuel being per-
suaded to appoint, in an irregular manner, Hajj Amin al-Husaini as
Mufti of Jerusalem and affording him unchallenged and unaccountable
control over all Muslim institutions in Palestine; or Allenby, Milner,
and Lloyd George allowing themselves to be out-manoeuvred by Egyp-
tian politicians whom Cromer and Kitchener had known how to con-
trol; or the successive ministers who set up the ramshackle, sanguin-
ary, and ill-fated kingdom of Iraq; or Eden, Spears, and Altrincham
elbowing the French out of the Levant and seeking to preserve con-
trol over the middle east by the promotion and encouragement of pan-
Arabism; all these episodes show successive and cumulative manifes-
tations of illusion, misjudgment, maladroitness, and failure. Such at
any rate is the picture which emerges from the evidence examined in
this book.
The evidence is evidence of what was said and done in particular
circumstances, at a given time and place. From it cannot be inferred
that what was done was inescapable. On the contrary: Mcl\(ahon and
tx
 INTRODUCTION TO THE NEW EDITION

his officials in Cairo in rgr5 could have reached a different conclusion

about the prospects of an Arab revolt led by the Sharif of Mecca;
Allenby could have issued different orders about the occupation of
Damascus; Milner could have refused to be entangled in compro-
mising negotiations with Zaghlul; the British government could
have decided that the importation of an outsider to rule Mesopo-
tamia was ill-judged and dangerous. The historical enterprise does
indeed assume that what was done need not have been done at all, or
need not have been done in the manner in which it came to be done.
And if things had been dene differently, it is a safe assumption that
the consequences would have been different, even though we cannot
possibly know what these other consequences would have heen, how
those involved would have responded, or how their different interests
would have benefited or suffered. The historian, again, cannot take
the actions and thoughts which he narrates to be instances of a law,
nor can he consider them to be simply an epiphenomenon deriving its
meaning and significance from a hidden structure which, so to speak,
bodies it forth.
These remarks are inspired by some reactions which The Chatham
House Version attracted when it was first published in r97o. The
points made in two review articles, by Professor Arnold J Toynbee
and Sir Alec Kirkbride ('Was Britain's Abdication Folly?', The
Round Table, April and July ry7o) , may usefully sum uP these reac-
tions. The writers attribute what they call Britain's abdication of rule
in the middle east during the period covered by The Chatham House
Version to its decline as a world power and to its diminished military
capacity. The forces of nationalism simultaneously became irresistible,
and the British Empire therefore uncontrollable. In the circumstances,
so it is alleged, the British people were unwilling to embark on a re-
conquest of empire. But this argument is muddled, because it is
anachronistic. It transports a state of affairs and a state of mind which
came to exist in the decades following the second world war, and
particularly after 1956, to the period between r9r9 and 1945. In fact,
during this earlier period there is no evidence that policy-makers were
guided in their decisions by a belief that the empire was on the decline,
or that nationalism was an uncontrollable force which rendered the
empire ungovernable. It is true that immediately after the first world
war military expenditure began to be scaled down considerably. But
this was because the British government believed that there was little
prospect of a major European war. Ministers, however, did not believe

x
 INTRODUCTION TO THE NEW EDITION

that Britain was too weak to control either India or the middle east,
and the record between the wars proved them right. There were of
course some disturbances in India-chiefly in the Punjab-in Egypt.
Iraq, and Palestine during rgrg and r9zo. But these were short-lived
and they were quelled with relative ease. So far as the middle east was
concerned, it was after these disturbances were put down that policy-
makers decided that British interests could be preserved more eco-
nomically and with less trouble if local leaders were to be installed in
power and if British imperial interests were secured through treaties,
the ultimate guarantee of which would, of course, be British military
and naval preponderance in the area.
Toynbee is particularly insistent on the inevitability of what he
called British abdication in the middle east. This is a curious paradox
in someone for whom challenge-and-response is the motor of history.
Such a notion ipso lacto rules out the foreordained and the inevitable.
The response to a challenge can never be anything mechanical or auto-
matic. Implicit in the very idea of a response is that it could have
been other than what, in the event, it was. Toynbee believes for some
reason that Western rule over non-Westerners was bound to be short-
lived, that like the North American colonists, malcontents in the
middle east would have been sure to resort to force, that British
policy-makers saw the red light and conceded before being willy-nilly
evicted from the middle east. fn the absence of evidence, such argu-
ments, one must conclude, seem to be justifications for political posi-
tions associated with what I have called the Chatham Version, rather
than genuine historical judgments.
As the evidence shows, British policies discussed in this book were
not adopted under compulsion. They were a matter of choice. They are
of interest to the historian precisely because they were a matter of
choice, not an automatic and unthinking reaction. There would in-
deed be little point in exploring the assumptions, implications, and
consequences of British responses to middle-eastern conditions dur-
ing the period covered by this book if Toynbee, Kirkbride, and others
are right, if-to mention episodes discussed in this book-there was
really no alternative to what Allenby and Milner did over Egypt be-
tween rgrg and tgzz, to what Churchill decreed about Mesopotamia
in r9zo, to Cornwallis refusing to allow British troops to enter Bagh-
dad in r94r in order to quell looting and murder. History would then
lose its savour and the historical enterprise would be a pointless re-
cital of inevitabilities.
xl
 INTRODUCTION TO THE NEW EDITION
Toynbee and the others are wrong and doubly so: not only did the
British Empire have a lot of elbow-room in the middle east between
the wars, but also the policy-makers themselves believed that this was
the case-indeed continued to do so even when, with India gone, their
room for manoeuvre had shrunk considerably. For as late as 1956,
Eden was convinced that Great Britain could take action on its own
in order to bring Egypt to heel, and safeguard the real preeminence
which he believed his country still enjoyed in the middle east.
Two other volumes, Arabic Political, Memoirs and, Other Studies
and Islam in the Modern World and Other Studies, published in r974
and r98o respectively, contain chapters which complement and aug-
ment the studies published in this book.

E. K.
tanuary t984

xIt
lntroduction to the 2oo4 Edition
by David Pryce-Jones

Elie Kedourie is one of those exceptional writers who oblige their

readers to examine what they think they know and to modify their
view of the world accordingly. Whatever he wrote has the power to
go beyond received opinion straight to reality. A scholar, even a
miniaturist if necessary, he had a profound sense of tragedy and
possessed the language and artistry with which to do justice to it.
In his account, events as they had actually unfolded could be mea-
sured against events as they might have unfolded, had those in-
volved been wiser or more humane.
How do ideas take root and spread to displace other ideas, until
all of a sudden reality is perceived in a new light? In 196o I was
literary editor of. Thne and Tide, then a weekly magazine pub-
lished in London, a serious magazine but aspiring to be fresh. Pro-
fessor James Joll was a specialist in nineteenth-century European
intellectual history who had taught me at Oxford University. He
and the orientalist Sir Hamilton Gibb had been the examiners of
a doctorate presented in Oxford in the early r95os by EIie Ke-
dourie. The doctorate was critical of the negligent manner in
which the British had broken up the Ottoman Empire at the end
of the First World War. Gibb was a leading advocate of Arab na-
tionalism and could not accept Kedourie's description of the small
but malign part it had played in this turning point of the Middle
East. Consequently Kedourie withdrew his doctorate, publishing
it in 1956 under the title England and tlte Middle East: The De-
stntction of tlte Ottotnan Empire, and abandoning Oxford for the
London School of Economics where he was to stay for his entire
academic career. Gibb had allowed bias to overcome scholarship.
James Joll used to blush at the recollection of this scandal, in

xlll
 INTRODUCTION TO THE 2 OO4 EDITION

which, to be fair, he was only a secondary actor. But I saw an op-

portunity to recruit the kind of contributor that Time and Tide
was looking for. Kedourie was receptive. In a book review that fol-
lowed, he threw out the observation that the sooner Lawrence of
Arabia was left to obscurity the better-this was almost sacrilege
at a time when the man was seen as a hero rather than the fanta-
sist he was. He also quoted a fine and self-defining sentiment of
Lord Acton's, that history should be an illumination of the soul.
In person Kedourie was grave, courteous, his views fully consid-
ered and spoken with the assurance that comes from wide experi-
ence and profound reading, and he had an expression somewhere
between a grimace and a chuckle at examples of the willfulness, in-
consistencies, and folly that occupy so dominant a part of human
activity. Having moved on from my stint as a literary editor, I used
to visit him and his wife Sylvia in their home in Hampstead in
north London, by tradition a district where refugees from assorted
modern tyrannies have found refuge. I knew that they both came
from distinguished families in Baghdad and, in common with the
ancient Jewish community of some r2o,ooo people, had been dis-
possessed and forced into exile in the aftermath of the Second
World War. I sensed a hurt too searing ever to be spoken about in
mere conversation, and I did not care to press it.
And then in r97o The Cltathatn House Version appeared. At the
time, nationalist leaders in India, the Middle East and Africa had
come, or were about to come, to power. The British Empire had
hitherto been a fixed point of reference in the world, and those who
administered it had willingly accepted responsibility for the rule of
law and the maintenance of order. The abrupt dismantling of this
empire dislocated millions of people, Ieaving them at the mercy of
self-appointed leaders. In one country after another, the achieve-
ments of many decades, and sometimes as long as a century or two,
were undone in a flash of violence; law and order gave way to dic-
tatorship and tyranny, and graveyards and prisons filled accord-
ingly. And this, according to fashionable opinion-makers in Britain,
was liberation, the exciting birth of the Third World.
Given his background in Iraq, EIie Kedourie understood only
too well that liberation of this kind was no liberation at all. His
task rvas to examine how things had come to this pass, to study
the archives exactly and to keep the record, if only for the satis-
faction that the historian feels when he "makes for himself a
xiv
 INTRODUCTION TO THE 2oo4 EDITION
coherent intelligible picture," in other words for the illumination
of his soul. Above fear or favor, the historian in this perspective
has a heroic role.
In this case, in the conditions after the First World Wa4 Britain
had supplanted the Ottoman Empire as the preeminent power in
the Middle East. A small handful of dignitaries at the center in
London had been accustomed to taking decisions, and always in the
same sense of upholding law and order. Heirs to a high imperial tra-
dition served by experienced advisers and officials, these digni-
taries had reputations as statesmen, soldiers, and men of the world.
But behind Britain's splendid twentieth-century fagade was a
structure shriveling from within. Famous though they were, Field
Marshal Allenby, Lord Milner, Lawrence of Arabia, and the rest had
in fact lost confidence in themselves and the imperial mission. Loss
of will led to misinterpretation of Arab and Muslim society; to mis-
taken judgments and broken promises; and so to abdication of re-
sponsibility for those they ruled.
Large numbers of people within this empire could never have
predicted that decisions might be made over their heads which
would negate the rule of law and turn upside down everything they
had taken for granted. One by one, and cumulatively, these deci-
sions encouraged local nationalism, to the point where there was no
alternative except to surrender to it. Unknown in Ottoman days,
nationalism was an ideology imported from nineteenth-century
Europe, a "curse" in Kedourie's scornful word, because it forced
unfamiliar identities onto the masses, politicizing them, and pitting
ethnicities and sectarian faiths against each other in these lands
with mixed populations. Most disastrously of all, unscrupulous and
ambitious men-"Iittle officers," in another scornful phrase-easily
manipulated nationalist ideology in order to seize powel where-
upon as autocrats they proved far more brutal than ever the British
or the Ottomans before them. In one Arab country after another,
and beyond in the Third World, independence brought tyranny,
not freedom, to people in no position to defend themselves.
None of these horrors need have happened. But to add insult to
injury, there were many in Britain and elsewhere to pretend that all
was for the best. The violence and tyranny suffered by others was
a cause of self-congratulation for socialists, and some conservatives
went along with itas well. Never mind law and order, they liked to
argue, the British should never have had an empire in the first
xv
 INTRODUCTION TO THE 2oO4 EDITION

place, and had rightly got out of an exploitative and immoral

enterprise about which they ought to feel nothing but guilt. The
intellectual vapidity of that era was captured when Harold
Macmillan, British prime minister no less, in a speech which set its
stamp on events, spoke of "the winds of change" as though the end
of empire blew in from something vague to do with climate, unre-
lated to the willfulness; inconsistencies, and folly of those who
made decisions. Professor Arnold Toynbee was a would-be poly-
math with much influence in the corridors of power, and perhaps
nobody did more than him to falsify history with a fictitious ac-
count of the British, indeed the whole West, depicting them as ag-
gressors and everyone else as victims-and this while Third World
rulers were busier than ever filling their graveyards and prisons
with their own subjects. Here was what Kedourie in the title essay
of this book defined once and for all as "the shrill and clamant
voice of English radicalism, thrilling with self-accusatory and joy-
ful lamentation." This may claim to be the most devastating
polemic since the Second World War; and more than that, a land-
mark in the redirection of public opinion. To continue to lay the
blame for Third World horror and violence on the British and the
West was condescending as well as nonsensical.
Various contemporaries-a novelist, journalists, academics-
have told me what an impact these essays have had on them. From
individual to individual, as it were accidentally, until the response
of readers becomes a critical mass: that is how ideas spread and dis-
place other ideas. Publishing numerous other books and a wide
iange of articles, Kedourie in the end established that his ideas and
interpretations correspond to reality and therefore have lasting
value. What might he have made of the current upheavals in
Afghanistan and Iraq, or of Islamism in its recent development?
Whether it likes it or not, the United States now has to maintain
law and order as Britain once did, and grapple with the same ri-
valries between peoples not really accustomed by their past to or-
ganize themselves into states and nations. However constant the
tragedy of history might seem, Kedourie was a great enough man
to show that telling the truth about what has happened is also the
way to preserve hope for something better one day.

xvi
The Chatham House Version
and other Middle-Eastern Studies
The Middle East and the Powers

Ever since the nineteenth century, when so-called reforms were

initiated in the Ottoman empire, there have not been wanting western
ministers and diplomats to look on middle eastern politics with hope
and expectancy. It is quite common knowledge that in the last
hundred years the middle east has seen no quiet, that disturbance
has suceeded disturbance, and that violent, categorical men have
followed each other to prescribe and apply drastic but unavailing
remedies. It might therefore seem more prudent to assume that the
distemper of the modern east is not a passing one, that its political
instability is rather the outcome of a deep social and intellectual
crisis which the schemes of the reformer and the goodwill of the
philanthropist can scarcely assuage or modify. And yet the sober
assumption that middle eastern instability is today endemic has
found little favour either in Britain or in America. The prevalent
fashion has been to proclaim the latest revolution as the herald of a
new day, and the newest turbulence as the necessary and beneficent
prelude to an epoch of orderliness and justice.
The meliorism of western liberals, the activist categories and the
hopeful concepts of their political science go far to explain such an
attitude, as also their conviction that a stable, universal peace will
ensue only when the world is composed of democratic and progressive
nation-states. Whatever the truth of this dogma, it is not one which
a statesman should entertain, and indeed it is irrelevant to him
whether the events with which he has to cope are milestones on a
road leading somewhere, or mere variations on an eternal theme
eternally repeated.
The ultimate significance of social and political change, and the
remote consequences of action, are dim and uncertain. The power of
chance, the accident of personality, the ritual of tradition, and the
passions of men are always at work to mock benevolence and
 THE CHATHAM IIOUSE VERSION
denature its contrivances. It is enough for practical men to fend off
present evils and secure existing interests. They must not cumber
themselves with historical dogmas, or chase illusions in that maze of
double talk which western political vocabulary has extended over the
whole world.
But when recent British and American policies in the middle east
are considered, together with the doctrines and principles which
justify them, then it is realised what a large part verbal traps and
dubious dogmas have had in the construction of doctrines and the
shaping of policies. The reasons for this are many. The fact that the
middle east is remote, that its traditions and its codes of behaviour
are alien, should not by itself have necessarily led to misunder-
standing. The unfamiliar may invite caution as well as recklessness.
But in this case the remoteness meant that it was difrcult and in
many cases impracticable to judge and to criticise in the light of
common sense and experience certain interpretations of middle eastern
history and politics offered to the Americans and the British by
interpreters who seemed expert and well placed. Among the most
influential of these in America are the missionaries. Their case is
curious: they went out to proselytise and have stayed to sympathise.
To America they began, since some fifty years ago, to present a picture
of Islam as a strict unitarian version of Protestantism, democratic and
egalitarian. The task before Christians, they said, was not to make
converts from Islam to Christianity, it was rather to lean over middle
eastern society with compassion, to take it by the hand, and rescue it
from centuries of superstition, corruption and tyranny. Essentially
and basically, Islam was enlightened and progressive. The western
education which they, the missionaries, provided would serve to make
Muslims aware of the true value of their religion and to inculcate in
them a sense of brotherhood towards the Christians who, after all,
worship - albeit in their own manner - the same true God as the
Muslims. And in fact, it is asserted, this is what is more and more
happening in the middle east. Enlightenment is spreading, the rulers
are acquiring a public conscience, and democracy becomes stronger
every day. To take a recent instance of the attitudes of these mis-
sionaries: 'The time seems ripe', writes the Reverend Erich W.
Bethman,l director of the Department of Research and Publications
of the American Friends of the Middle East, 'to usher in the era of
cooperation- a cooperation based on mutual respect for and esteem
of the deep spiritual qualities inherent in both religions. These
2
 THE MIDDLE EAST AND THE POWERS
qualities are a part of every believing Muslim and every believing
Christian, finding in each their deepest realisation in prayer, "and
where prayer, love and mercy dwell, there God is dwelling too".'
Such an interpretation of the middle eastern situation is difficult
to dislodge, and not only because its sponsors are authoritative and
well placed. Two other factors at least allow such an interpretation to
go unchallenged. The first, as has been said, is that of remoteness.
One of the simplest and vet most effective means known to mankind
of keeping touch with reality is to contrast what people say with what
they do, to compare professions with performance. In one's own
society, with a clear conception of one's position and interests, with a
familiar knowledge of the meaning of words and the significance of
behaviour, a test such as this seldom fails. But a Power such as
America is unlikely to have a clear and settled conception of its
interest in every distant part of the world where events compel her to
have a policy. Alien conventions and unfamiliar speech add to the
confusion. Reports are uncertain, actions dissolve in a haze, causes
and consequences alike shadowy and unsubstantial, and those in
power seem more the emanations of current legend and fashionable
doctrine than solid men of flesh and blood, who take bribes and make
conspiracies, who deport, imprison and kill. All too often, therefore,
assumptions are not tested on the pulse of experience, they remain
mere abstract doctrins, and men are taken up and praised for what
they say rather than for what they are. This tendency is reinforced by
a second, powerful factor. The language of modern English and
American politics is now adopted by the whole rvorld and, divorced
from the tradition in which it has value and dignity, becomes a
debased, inflated jargon, a showman's patter by rvhich tyranny is
made to seem constitutional, and crookedness to look straight. The
snare of this familiarity, more than any exotic remoteness, entraps
the mind with smooth explanations and plausible theories. 'There-
fore,' we read of our condition in Holy Scripture, 'is the name of it
called Babel because the Lord did there confound the language of all
the earth.'
The missionary arguments have their equivalents in Britain. They
are not identical, but they tend to the same conclusions. Influential
orientalists and commentators on oriental afiairs have been successful
in spreading a deep sense of guilt among the English intellectual and
political classes. The west, they have argued, has sinned grievously.
It has sinned from igrrorance and presumption, and it has sinned from
 THE CHATHAM HOUSE VERSION
cupidity. It has been contemptuous of eastern values, and it has taken
advantage of eastern weakness to impose its domination. In its pure
condition, the academics have said, Islam is more wholesome than
western civilisation. It forbids drunkenness, prohibits usury, and
makes very difrcult the war of the classes. And what has the west,
what has Britain done? It has let vice loose in the east, it has made
cupidity attractive and has shattered the harmony of the classes.
These assertions contain sufficienttruth to make them plausible, but
the passion and the tenacity with which they have been held and
advanced vindicate neither the judgment nor the discretion of their
authors. For they have not been content merely to expound a theory
on the nature and history of Islam. They have condemned, rebuked
and recommended. They have said that the action of France and
Britain after the first world war twisted and deformed the political
development of the Arab countries. There were then upright, moderate
Arab nationalists who were prepared to cooperate with the west and
to set up modern, enlightened and progressive polities. They were
thwarted, betrayed, and driven to violence and extreme courses.
Britain conspired with France and the Zionists, to deny the Arabs
their just claims and to bring ruin on them. The least that the west
could now do was to make amends for their sins, to repair the moral
and material damage it had sinfully wrought. It had to promote and
guarantee Arab unity, to provide political support for Arab national-
ism, and to give ample, unconditional economic aid. This, of course, is
now a familiar weapon of Arab propaganda, but the weapon was
forged and perfected by English writers and scholars.
Their work was made easier by two circumstances. The first lay in
the nature of Anglo-American historiography dealing with recent
political events. Some of the most influential versions of the origins
and consequences of the first world war were based on the assumption
or rather the conviction, that the war and the unsatisfactory settle-
ment which followed it were both due to the operations of powerful
and sinister interests tryrng to realise their aims by secret diplomacy.
Had diplomacy been open, it was argued, many disastrous conse-
quences would have been averted, and governments would not have
dared to avow, much less try to secure, their illicit and dangerous
ambitions. Now it was of course the case that the Allies had con-
certed the settlement of the eastern question by means of secret
agreements, and this was enough therefore to denounce this settle-
ment - which was not particularly concerned with pan-Arab ambi-

4
 THE MIDDLE EAST AND THE POWERS
tions - as immoral, dishonourable and worthless. This explains, for
instance, the extraordinary currency which, even today, George
Antonius' tendentious history still enjoys as an authority on the
transactions of the Allies with the Arabs and the Zionists.
The other circumstance which has confirmed the current picture of
modern middle eastern history, as it obtains in Britain, istheoutcomeof
an accident, the consequences of which are prodigious and inexhaust-
ible. This accident is the involvement of Lawrence and his friends in
British middle eastern policy. Lawrence was iul outsider who
suddenly rose to fame and power in the space of a very few years. He
had neither the esprit d.e cor'ps, nor the understanding of the state's
position and interest which comes from the constant and regular
practice of government and diplomatic negotiation. His impassioned
apologetic was therefore violently eccentric and out of all relation
to the facts. This in itself is not surprising; what is surprising is that
powerful and influential men, neither outsiders nor eccentrics,
accepted and embraced a version of history so subversive of their
country's position and so contemptuous of traditional instruments of
its welfare such as the army and the civil service. The burden of
Lawrence's complaint, and the refrain of his party, was that a great
act of injustice had been committed against the Arabs by reactionary
politicians and their ridiculous civil servants. This had happened
because these men were ignorant of the new forces in the east, and
because of their criminal weakness in the face of the satanic designs
of France. Lawrence and his friends spoke not as mere students of
politics, but with authority. They had been there, in this new east,
they were acquainted with the new men, and they recommended
them heartily to the British public. And this again is a matter for
surprise. What surprises is not so much Lawrence's own extravagance
as that of his friends, who took up and sponsored little conspiratorial
officers devoid of political style and filled with tedious political
fanaticisms.
The result of all this has been to establish as a commonplace of
political discussion that the two most important issues confronting
statesmen in the middle east are Zionism and imperialism. It is
asserted that these two factors are at the root of instability in the
area. If these two factors could somehow be removed, or if the Arabs
could be convinced that they have been removed, or at least neutral-
ised, then there would be a hopeful prospect of peace and prosperity.
How sound is such an analysis? Two questions arise at once. Are these,
 THE CHATHAM HOUSE VERSION
in the first place, issues capable of settlement; and, in the second,
even if they were settled, rvould peace and progress establish their
dominion in tlie middle east?
What may one properly mean by a settlement of the Palestine
problem? Because of the shape and history of the dispute, one cannot
mean asettlement of the dispute which arose between the Palestinians,
Zionist and Arab. This dispute has become secondary and, indeed
forgotten. The dispute now lies betlveen Israel and the Arab states;
but to put the matter in this way is to confuse the accidental with
the essential; for in this wider dispute Israel is the immediate but not
the most important factor. This lies in the rivalries of the Arab
states which led them to form an Arab League in which each party
tried to gain the ascendancy. Of this game Palestinian Arabs - to-
gether with the oriental Jewries - were the hapless victims. A solu-
tion of the Palestine problem, we may therefore say, will accomplish
little even if all the Israelis were exterlninated and their state
destroyed. For then would perhaps come a quarrel about the spoils
and issues even more intractable, but certainly not peace.
Imperialism, as an issue of practical politics, is even more deceptive
and irrelevant. For what can it mean to say that imperialism has to
be eliminated before peace can be assured in the middle east? For
some time now it has meant that what remains of British and French
influence in the middle east had to be destroyed. This obviously does
not entail the elimination of the influence of the other Great Powers,
on the contrary. But to replace British and French influence and
rivalries by American and Soviet ones is not necessarily to secure
greater prosperity or a firmer peace. If, however, the contention means
that peace cannot be secured in the area until all great Powers cease
to have influence in the middle east, then it is a nonsensical one, the
outcorne of fashionable western sentimentality which holds that
Great Powers are nasty and small Powers virtuous. Further, since
Great Powers necessarily must always wield influence in this area,
the contention becomes an empty slogan further to confuse and debase
the language of political discourse.
The elimination of British and French power and influence in the
middle east may, of course, have been thought to redound to the
benefit of the United States, and indulgence in current political
jargon, it may be argued, was a convenient smoke-screen the better to
reach this objective. If use of jargon implies no doctrinal commitment,
then we may enquire whether the elimination of British and French
6
 THE MIDDLE EAST AND THE POWERS

influence had to remain a permanent aim of United States policy,

and how far the acceptance, and further propagation, of such a
jargon could help to establish the influence of the United States in
the area. The elimination of Britain and France, however, has
strengthened not merely the United States but also the Soviet
Union. This is not only the unwitting result of a particular policy, as
was the case with American action at the time of the Suez expedition,
but is inherent in the very logic of the situation. Short of enforcing her
claim by war, the Lhited States cannot be the only patron in the area;
and with Britain and France eliminated, some clients at least, in the
hope of satisfying their local ambitions, w-ill find attractive the
patronage of the only other Great Power remaining, namely, the
Soviet Union. Such a situation, as Britain eventually found to her
cost, provides a temptation which it is difficult to resist, and which
may lead to great loss. The fortuitous and temporary absence of
Russia from the middle east after r9r7 meant that Britain and France
remained there face to face, and the traditional triangular or quadri-
lateral game of the Eastern Question as it was perfected in the nine-
teenth century could no longer be played. Anti-French prejudices,
which coloured so much of British political attitudes between the
wars, made it seem, therefore, safe, reasonable and attractive to
edge the French out of the Levant, so that Britain would remain the
sole dominant power. In the event, this led to the undoing not only
of the French position but of the British position as well. The very
same arguments that rvere used, lvith British encouragement and
applause, against the French, were later turned against Britain with
equal effeet. History, it is true, neither teaches lessons nor repeats
itself, and where Britain failed the United States may well succeed.
However, if the United States and the Soviet Union are the only
patrons, they are likely both to be forced into the same posture. They
must try to outbid one another. But with the Soviet Union as com-
petitor, it does not seem profitable for the United States to ride, out
of conviction or convenience, the anti-imperialist wave. Neither has
the Soviet Union found much profit in becoming the patron of pan-
Arabism. Britain tried to do it and promoted the Arab League, but
like the Old Man of the Sea the extravagant rhetoric and inflated
ambitions conjured up on that occasion remained inexorably to cramp
and cripple all attempts to follow a saner policy. Anti-imperialism in
the middle east as an issue of practical politics is either irrelevant or
nonsensical. It increases misunderstandings, and promotes illusions,
 THE CIIATIIAM HOUSE VERSION
to the benefit of agitators and those who know how, and do not
scruple, to use them. In such a game the losers are the peaceable and
the civilised.
Tidy doctrines, then, will not help, and simple answers will deceive.
The disorder of the east is deep and endemic, and the disappearance
neither of Israel nor of so-called imperialism will cure or even mitigate
it. The very attempts to modernise middle eastern society, to make it
western or'democratic'must bring about evils, which may be greater
than the benefits. Today it is fashionable to say that the prosperity
coming to certain countries in the middle east from oil, from foreiga
aid and from increased economic activity will in the end mean the
development of that middle class hitherto so notoriously absent from
Muslim history and which will prove a bulwark of constitutionality
and freedom. This hope is presumably based on an analogy with
European and American history, an analogy, which is, however, quite
false. The middle classes in Europe and America attained their
greatness by their own efforts, without the help of government as in
America, sometimes against the obstruction of aristocrats and ab-
solutists as in Europe. But whereas economic enterprise was in the
west predominantly the affair of individuals, in the middle east it is
predominantly the affair of governments. The British government
neither opened up the coal mines of the British Isles nor claimed to
share the profits of the enterprise with the mine owners; similarly
the government of the United States did not claim that every Texan
who found oil in his backyard should give up half the value of his
property to the state. It may be argued that this has caused great
discrepancies in wealth, and that the benefits of wealth were distri-
buted at random, in proportion neither to merit nor to need. This may
well be, but such a state of afiairs is inseparable from the libertarian-
ism, the independence and the mistrust of authority which are
traditionally associated with the qualities of the middle classes in the
west, and which, it is now hoped, can somehow be transplanted in the
middle east. But in this area government is the chief entrepreneur.
It is the recipient of oil royalties and of foreig:n aid, and it is through its
decisions and its favours that prosperity filters through to the general-
ity of the people. Again, it may be argued that this arrangement is
the one most conducive to the greatest welfare; but in this case, it
has tc be recognised that it does not diminish, but rather magnifies
and exaggerates, the power of government. In Europe, the middle
classes attained political Power after becoming economicdly pre-
8
 TIIE MIDDLE EAST AND THE POWERS
dominant. In the middle east it looks as though modern economic
processes will lead to no such result, since these processes only
accentuate what has always been a character of Muslim society,
namely the dependence of all ranks and classes on the centrd political
authority. Now, as in the past, wealth generally depends on access to
political power, on the benevolence or at least the acquiescence of
those in power. In an area where political power is traditionally
capricious in the transmission, acquired by violence and established
by repression, it is the caprice of those in power rather than the
impersonality of the economic process which gives society its pre-
dominant character and its characteristic visage. And what must also
tend to confirm habits and an established character is that this new
wealth is not the product of local enterprise, but seems a sudden,
capricious windfall, the tribute which a miraculous Providence has
compelled the Powers of Europe and America to press upon the
east.
Another modern development which tends in the same direction
is an outcome of westernisation. European administrative techniques
have been put at the disposal of the local governments who have been
thus enabled, as never before, to exert a minute systematic control
over social and economic activities. New methods of import licensing,
exchange control, and fiscal supervision have made private persons
quite dependent on the goodwill of those in authority who are able,
when they choose, to punish the object of their malice and ill-will
swiftly and effectively. It is by such means that the Iraqi govern-
ment was able efficiently to spoil and loot the Jews of Iraq, and by
similar means that the government of EgSrpt has been able recently
to follow in its footsteps. This new power of government makes even
more complete the dependence of the economic on the political, and
must thus hinder the emergence of that independent middle class on
which so much hope is set. This increase in the power of government
affects not only the economic sphere, but extends in all directions.
The modernisation of society in the middle east has not been the
result of private initiative and the gradual adaptation of a local
tradition to changing conditions. Rather, it has been imposed from
above, by decree, and implemented, as far as possible, by officials.
This meant that the traditional articulation of middle eastern society
had either to bend to the will of the reformer or be completely dis-
located. Such has been the fate of Muslim as well as non-Muslim
religions and communal organisations, of provincial particularisms, of
 THE CHATHAM HOUSE VERSION
locd and vested interests. Individuals are nowequal under the law,
corporations the creatures of statute, and law arrd statute the irre-
sistible will of a central and sovereign authority.
This increase and concentration in the power of government is the
most striking consequence, so far, of the attempt to westernise middle
eastern so,ciety. It has given new life to the political attitudes pre-
valent in Muslim society, it has confirmed the subject in his passive
obedience to the effective ruler, and the ruler for the time being in the
amplitude of his power. Political stability in such a situation is, of
necessity, chancy and precarious. The traditional checks and balances
have grown progressively weaker, habits of liberty are unknown, and
the subject has more reason than ever to fear the displeasure of his
masters. To get hold of power, it is sufficient to get hold of the central
mechanism, and the rewards of power are prodigious. This instability
is increased by the character of the men who now compete for power.
They are new men whose earliest and deepest political impulse is
contempt for the ways of their fathers. Youth, which in most countries
and ages has been a disqualification for the practice of government,
has become, since the days of the Young Turks, an advantage in the
contest for power. The dislocation of society is made more acute by
estrangement between the generations. The young are those who
possess the techniques of Europe which middle eastern society - so
they insist - must adopt or perish. Therefore they know better than
their fathers, and they have the key to political salvation. The passion
and presumption of youth, their rooted belief in their ancestors'
igaorance and folly, their inexperience and clumsiness in the exercise
of power, combine to deprive them of that decorum and graaitas
which impressed foreign observers in the Muslim ruling classes of
past centuries, and which served to put a decent check on the full
expression of greed and cruelty. Heaven knows that sedition, treason
and civil war are common enough in middle eastern history, but only
in the present age is revolution glorified as a necessary part of the
political process, violence proclaimed beneficent and treason holy.
The institutions and the men who control them combine together
to make these unfortunate middle eastern polities the victims of
instability and the sport of civil commotion. This has been the case
ever since the Young Turks came to power, and there is no sign of
change. If only because of these factors it would be prudent to expect
trouble, and not to put too much faith in simple solutions and neat
explanations. But there are also other reasons which concern more
IO
 THE MIDDLE EAST AND THE POWERS
intimately the conduct of foreign policy. The Muslim theory oI inter-
national relations recognises two possible situations only: war on the
infidel or his subjugation to the faithful. Peace with lim d,e jwre is
impossible; there can only be various grades of active or passive
hostility until he recognises the authority of the Muslim ruler. Such
indeed has been not only the theory but the practice in the relations
of Muslim and Christian powers. The disturbed frontiers between
Israel and her neighbours today are nothing exceptional; they
exemplify rather what has normally been the case on the frontier
between Christendom and Islam. The concepts therefore of inter-
national law and practice which have been current for centuries in
the Christian west, concepts such as the concert of the Powers, the
comity of nations, or the sanctity of treaties, the rules of natural
justice, or 'decent respect for the opinions of mankind', are quite alien
and largely unintelligible to the middle east. It is significant that the
Ottoman empire was formally made a member of the concert of
Europe only after the Crimean war, when it had lost its superiority
and was being gradually overwhelmed by the Christian Powers. It
is not surprising then that to Muslim minds the western vocabulary of
international relations should appear little relevant to their most
important preoccupation, namely, the steady encroachment by
Christian Powers over the domain of Islam. The same may be said of
the Muslims' attitude to the two creations of the western theory of
international relations: the League of Nations and the United
Nations. F-or by the time these institutions came to be set up the
Christian Powers seemed more powerful and dominating than ever.
The Muslim states thought of themselves not as mere quiescent
members of the comity of nations, but as fighters engaged in an active
struggle against the very Powers who claimed to set the tone and
establish the rules of behaviour in international relations. Their
adherence to the western principles of international relations is as
formal as the admittance of the Ottoman empire to the concert of
Europe in 1856.
These traditional Muslim attitudes have been confirmed and
fortified by nationalist doctrine, which of all western political doc-
trines has been the most popular and the best understood in the
middle east. The international theory of nationalism is as little dis-
posed as the Muslim theory to envisage a stable international order
as a practical possibility. The Muslim theory postpones this to the
day when the last infidel shall have made his obeisance to the Caliph,
II
 THE CIIATHAM HOUSE VERSION
while nationalist theory postpones it to the day when national vindi-
cations shall have been all satisfied. Both are subversive of inter-
national stability, both are activist, both consider conflict not a
regrettable evil, nor even the continuation of diplomacy by other
means but, so long as a single imperfection subsists in the world, or
so long as a single principle remains unrealised, a duty the discharge
of which is exhilarating and rewarding. Against all this turbulence
a simple strategy does not avail. Resource, cunning, patience, and
steadfastness can scarce contend with it. But even they will fail once
it is thought they can do more than keep disorder at bay.

t2
Cairo and Khartoum
on the Arab Question, r9r5-r9r8

The Arab question in British diplomacy, it is remarkable to observe,

has conjured up, both €rmong those directly involved and among
subsequent commentators, an amount of passionate discussion, of
anguished retrospection, of accusation and seUdenunciation quite
out of proportion to its intrinsic importance. For after all, compared
to the great issues of Europe, America, the Commonwealth and
India, the Husain-McMahon Correspondence, the Sykes-picot
Agreement, the Balfour Declaration are small and paltry transactions
which, as luck would have it, have turned out, it is true, to be in-
opportune and profitless and the cause of much loss and tribulation.
For the historian of the middle east, of course, the British connection
must loom very large by reason of its immediate impact and of its
ultimate consequences, but in British history can the short-lived
middle-eastern episode be more than a passing incident in the Indian
summer of the empire? For they are perhaps right, those who assert
that had Britain been able to retain India, her middle eastern posi-
tion could probably have been maintained, regardless of mistakes
and confusions in middle eastern policy itself, and that fndia once
gone, neither virtue nor virtuosity would have availed to preserve
Suez, Haifa and Habbaniyya. But this cool, sceptical view is rarely
met in the writings either of the participants or of the subsequent
commentators, whose mode is one of burning regret and vehement
lamentations, and who are for ever weighing good faith against bad
faith, promises kept and promises broken, scrutinising motives and
examining scruples, like the diligent followers of some strict pietism,
oppressed by sin and dolefully thirsting for justification.
It is curious to trace this feeling of sinfulness to its earliest origins,
to see whence it could have arisen, to elucidate the now forgotten
transactions which engendered it, and the confusions and ambiguities
r3
 THE CHATHAII HOUSE VERSION
which nurtured it. On tz September 1916 there was held in Cairo a
conference at which were present many British high officials, includ-
ing the high commissioner, the commander-in-chief of the Egyptian
Expeditionary Force, Colonel G. F. Clayton, who was then Sudan
agent in Cairo and in charge of Intelligence in Egypt, and Colonel
C. E. Wilson, governor of the Sudan Red Sea province, then repre-
senting the British government in Jedda. At this conference, held to
consider the critical position of the Sharifian rebellion which then
seemed on the point of collapsing, Sir Henry McMahon, seeming
much exercised by this difficult situation, and vexed by the unhelpful
and contradictory suggestions of his interlocutors, was moved to put
on record how it came about that he should now be saddled with the
sharif of Mecca and his problems.
It was the most unfortunate date in my life when I was left in charge of
this Arab movement [he said] and I think a few words are necessary to
explain that it is nothing to do with me: it is a purely military business.
It began at the urgent request of Sir Ian Hamilton at Gallipoli. I was
begged by the Foreign Office to take immediate action and draw the
Arabs out of the war. At that moment a large portion of the [Turkish]
force at Gallipoli and nearly the whole of the force in Mesopotamia were
Arabs, and the Germans were then spending a large amount of money in
detaching the rest of the Arabs, so the situation was that the Arabs were
between the two. Could we give them some guarantee of assistance in
the future to justify their splitting with the Turks? I was told to do that
at once and in that way I started the Arab movement.l
Sir Henry McMahon's blunt and cursory account indicates the precise
date at which the possibilities of Sharifian rebellion began to be taken
seriously, and the military exigencies which gave tise to this new
attitude. Before the autumn of r9r5, British ministers did not think
that a Sharifian movement would be efrcient or useful in the short
run, and they were afraid that in the long run encouragement of the
sharif would be troublesome and costly. This, certainly, was Lord
Curzon's view. In the spring and summer of r9r5 Lord Cromer was
plyrng him with suggestions emanating from Sir Reginald Wingate
in Khartoum that the sharif of Mecca be encouraged with liberal
promises of future aggrandisement, to secede from the Ottoman
empire and put himself at the head of a movement for Arab inde-
pendence. In a letter to Cromer ot zz April r9r5, Curzon deprecated
the idea that promises and declarations be made to the Arabs. The
British, he pointed out, were not yet in Constantinople; and further,
r4
 CAIRO AND KHARTOUM ON THE ARAB QUESTION
what evidence had the Arabs shown that they would be able to
administer an Arab state extending from the Persian gulf to Egypt?
Again, was it not futile, he asked, to proclaim a new state which
would be without territory, capital or ruler? Why, lastly, should the
British government prejudge the issue of the war and at once promise
Basra arrd Baghdad 'to a people who are at this moment fighting
against us as hard as they can and known to be in the pay of the
Germans?'s A few months later, in reply to further talk about an
Arabian caliphate, Curzon expressed great scepticism about the
capacity of the sharif. The sharif, he agreed, was a descendant of the
Prophet, but this apart, what could he accomplish? If the British
government recognised him as caliph, would they not be bound to go
to his support 'when his khalifate begins to totter or crumble'? He
was not greatly attracted to the perils of oriental politics where, as he
remarked, 'we usually put our money on the wrong horse'.s Lord
Curzon's views were not peculiar to himself. Official opinion at that
time viewed with misgivings any plan to partition the Ottoman
empire. The committee on Asiatic Turkey set up in April r9r5 by the
prime minister under the chairmanship of Sir Maurice de Bunsen
regarded partition as by far the least satisfactory solution of the
Eastern Question; the solution which they themselves favoured was
for the Ottoman empire to remain substantially intact and its ad
ministration decentralised.
That the sharif, as leader of an Arab union and as caliph, was not
the wrong horse to back, was emphatically the view of Sir Reginalcl
Wingate. In a letter to Lord Stamfordham of 5 September r9r5, he
indicated what moved him to 'push the future Arab union for all it
is worth'. Before rhe war, he wrote, he had supported and upheld
the Turkish connection on utilitarian grounds. But when the Turks
took the German side
I joined more vehemently perhaps, than others in the hue and cry
against them. . . . tsesides [he continued], I had to govern a country in
which the very name of 'Turk' stinks in the nostrils of the people. They
have been ground under the heel of the Turk and Egyptian (to them the
names are synonymous) and were in close proximity to the Arabs of
Arabia, who entertain very similar feelings to their own in regard to their
Turkish masters. For these reasons, I - who so warmly supported the
Turk on utilitarian grounds now espoused the Arab cause with still
greater warmth and with more - real sympathy.6
This sympathy and preference for the Arab over the Turk which, as
r5
 THE CHATHAM HOUSE VERSION
Wingate explains, came from service in the Sudan, was to leave its
*..k or, British policy during the war and long afterwards. Indeed,
Wingate's words express some of that sentimentality, so much in
contiast with Curzon's scepticism, and so misplaced in politics,
which was yet to colour official British attitudes until the sixth decade
of the twentieth century, to disappear, perhaps finally, only at the
murder of the Hashimites and of Nuri al-Sa'id in Baghdad on 14
from
July 1958. This sentimental bias was reinforced by arguments
poti"y.- On the outbreak of war with the Ottoman empire, British
om"i"t. in Egypt and the Sudan had to cope with widespread
Muslim hostility, and to guard against its possibly serious conse-
quences on internal security and military operations. A British under-
sianding with the sharif, advertising a split in Muslim ranks, would
bring them welcome relief and enable them to rebut ottoman charges
that Britain was waging an anti-Muslim war. Hence they were con-
cerned to open and maintain negotiations with the sharif and would
not want them abandoned.o It followed that they had to refute any
allegations tendingto throw doubt on the sharif's standing and
capacity. Thus both Wingate in Khartoum and Clayton in Cairo
were ready to answer the objections to the sharif raised by the
India Oftce, by the government of India and by others' Clayton, in
a note of July rgr5 declared emphatically that the sharif possessed
most of the attributes considered by Muslims essential for the
caliphate, and was also undoubtedly the most suitable from the
griiish point of view.? Wingate equally emphatically supported
claytont view and added that the consensus of the stdanese ul'ama
was that the sharif was in every way qualified for the caliphate.s The
sharif, he said in answer to the objections from the India Office, was
not a nonentity; the India Ofrce exaggerated the differences between
Arab chieftains, and in any case Husain was well able to comPose
such difierences.e
The urgent ton'e of the officials in Khartoum and cairo is easily
appreciated. Their responsibility for internal security, their proximity
to ttre Ottoman theatre of war, made them eager to close a deal with
the sharif and impatient with the delays and objections to which
they were subjected from London. There was a Srave risk, they were
con-vinced, that if their aspirations were not satisfied, the Arabs
would irrevocably side with the Turks. when, at the end of october
r9r5, negotiations with the sharif were at last begun in earnest'
Ciayton wondered whether it was not already too late; but if not, it
r6
 CAIRO AND KHARTOUM ON THE ARAB 9UESTION
was a near thing, he thought. By the middle of the following Novem-
ber, when the India Office were still objecting to the sharif's demands,
McMahon telegraphed to warn the authorities that the matter
brooked no more delay, and to reinforce his argument cited a letter
from the sharif to Sayid Ali al-Mirghani, the Sudanese religious
dignitary, to the effect that if the British did not hasten to make an
agreement, the Arabs would give their support to the Turks and the
Germans.lo But even if we bear in mind their anxiety about Egypt
and Muslim opinion, yet such haste and urgency in a case which was
by no means so pressing or so dangerous as they represented, such
eagerness at once to concede the patently inflated claims which the
sharif must have advanced in expectation of long and arduous
bargaining, still remain surprising in cautious and experienced
officials. The exigencies of the hour do not completely account for
their attitude. They were worried certainly about the immediate
future, but they also wanted to seize the opportunity of the war to
advance a scheme, which were it to succeed, would greatly increase
Great Britain's power and influence in the middle east, would indeed
make it the arbiter of the destinies of Islam in the world. A passage
in a letter of March r9r5 from Storrs to ColonelFitzGerald, Kitchener's
military secretary, gives a hint of their hopes and ambitions. 'A North
African or near eastern vice-royalty including Egypt and the Sudan
and across the way from Aden to Alexandretta would surely', Storrs
enthusiastically affrmed, 'compare in interest and complexity, if not
in actual size, with India itself'.rr Such a design goes far to explain
their readiness to grant with little haggling or discussion what the
sharif demanded. Their views are cogently put in a letter from Wingate
to Lord Hardings, then viceroy of India, dated z6 August rgr5. He
was, he said, increasingly drawn to a pan-Arab scheme as an antidote
to the aggressive pan-Islamism of the Ottoman empire. Pan-Arabism
would bring about a balance of power in the central area of Islam.
The historic position of the Arabs within Islam made them the only
efiective counterpoise to the anglophobia of the Ottomans which, he
feared, would increase after the war, He had, he said, no illusions
about the difrculties of his scheme, 'but I conceive it to be not im-
possible that in the dim future a federation of semi-independent
Arab states might exist under European guidance and supervision,
linked together by racial and linguistic bonds, owing spiritual
allegiance to a single Arab primate, and looking to Great Britain as
its patron and protector'.lz Wingate was therefore in favour of expres-
17
 THE CHATHAM HOUSE VERSION
sing 'pious aspiration on the subject of the sharif's idea of an Arab
uniirl, and even of encouraging salafis like Rashid Rida, who not
only aspired to an Islamic union in which the Arabs would have the
primacy, but also desired that the political life of the Islamic state
ihould be regulated according to the religious law.rE 'After all', he
observed to Clayton a year or so later, 'once we decided to encourage
the sharif to act, we should have done all we possibly could to meet
his demands without demur - this I constantly urged. Instead of this,
we have made twenty bites out of the cherry'.lr With Wingate's
knowledge and approval, hints on these lines were conveyed to the
sharif. Sayyid Ali al-Mirghani, who was then being used as an inter-
mediary in communicating with the sharif, employed remarkably
direct and clear language' In a letter of 17 November r9r5 he urged
the sharif to restore to the Arabs the stolen caliphate and the inde-
pendence and civilisation which the Turks had destroyed; the sharif
was to rise and take over the 'holy Arabian Koreishite Khalifate',
and there was no man better qualified.16 To the sharif, who knew that
his correspondent was agent and not principal, these words must
have seemed the categorical, unmistakable confirmation of the
ambiguous hints which British ofrcial communications had earlier
carried.tu Husain thereafter persisted in believing that Britain
promised
-since
him kingship over all the Arabs together with the caliphate.
ofrcial British promises of Arab independence were addressed
exclusively to him, as Hogarth wrote in a PaPer of March r9r8, the
sharif was persuaded that Arab independence necessarily meant unity
under him;t? since, further, the suggestion of an Arab caliphate had
come, as he correctly pointed out to Colonel C. E. Wilson, not from
him, but from the British, and what is more, had come quite un-
solicited,ls it may well have appeared to Husain that if these earlier
hints were ambiguous, this was only because their authors, as non-
Muslims discussing such a matter, did not think it seemly to be more
explicit.
When one considers the position and prospects of the British
empire as they appeared to its officials in Cairo and Khartoum,
Wingate's scheme of a pan-Arab union presided over, in some fashion,
by an Arab caliph, and the whole under the aegis and protection of
Great Britain - a scheme which Clayton also supported - seems to be
cogent and feasible. Both Wingate and Clayton advanced an attrac-
tively prudential calculation which, in their eyes, served considerably
to minimise the risk of such a scheme. 'After all', Wingate argued in
r8
 CAIRO AND KHARTOUM ON THE ARAB BUESTION
a letter to Clayton of 15 November r9r5, 'what harm can our accep-
tance of his fthe sharif's] proposals do? If the embryonic Arab state
comes to nothing, all our promises vanish and we are absolved from
them - if the Arab state becomes a reality, we have quite sufficient
safeguards to control it and although eventually it might act towards
its "Allied" creators as Bulgaria has acted towards Russia - I think it
is in our power to erect such barriers as would effectively prevent its
becoming the menace which the Indian Government appears to
fear'.re McMahon and Clayton in Cairo, for their part, were also of
exactly the same mind.2o
One particular argument which served to confirm the Cairo and
Khartoum oftcials in their views constituted, however, a considerable
misreading of the situation. In a telegram to the Foreign Ofrce of
3 December r9r5, McMahon, still trying to overcome India Office
objections, adduced in support of his position the idea that the Arab
movement was 'less religious than national', and that therefore an
Arab state was less dangerous to British interests than the Ottoman
empire.l2 Some two months before, when Clayton had interviewed
Muhammad Sharif al-Faruqi, the Ottoman officer who had deserted
at Gallipoli,22 he had been relieved to find that the claims of the
Arab nationalist societies, as represented by al-Faruqi, though
similar in point of territorial extent to those of Rashid Rida and his
followers, were yet devoid of 'Moslem fanaticism'. Al-Faruqi and his
fellow-officers were not, Clayton reported, carried away by the dream
of an Arab empire; they appeared to be reasonable men, willing to
compromise, and only asking for 'a general recognition of their
aspirations by England and the promise of a fair measure of self-
government in the various countries concerned under the guidance
and with the help and support of England'.2s This beguiling contrast
betweeu 'Moslem fanaticism' and nationalism was as wrong in theoryr.
as it was useless in practice. It imported an element of doctrine which
served, in an incalculable and far-reaching manner, to distort and
falsify the calculations of policy. The belief that nationalist aspira-
tions were benign and beneficial was of course no invention of
Clayton's. It had become the creed of Gladstonian Liberalism, and,
applied to the British empire, formed an essential part of 'Liberal
Imperialism', so-called, which infected so many British statesmen at
home and so many British officials overseas, at least from the begin-
ning of the twentieth century until the liquidation of the empire. In
the middle east itself the doctrine made attractive such policies as the
I9
 THE CHATHAM HOUSE VERSION
support of Faisal both in Damascus and Baghdad, Milner's policy
towards Zaghlul, Allenby's Declaration of z8 Febnrary rgzz in
Egypt (supported and advocated by Clayton, among others) and, in
a later decade, the encoura6ement of an Arab League. The outcome
of these diverse policies is sufficient commentary on the doctrine.
Al-Faruqi, Clayton reported, Iooked to the support of England,
'bul o! no other Power'. One other Power was here meant, namely
France, and France indeed represented then the most serious obstacle
to the scheme of Arab unity under British patronage as mooted in
Cairo and Khartoum. The officials here were aware of French claims,
and were indeed kept regularly informed of the Anglo-French nego-
tiations which issued in the Sykes-Picot Agreement of 1916, and which
began in London in November r9r5. The records of these negotiations
in the Wingale Papers are too fragmentary for a complete and co-
herent account, but the evidence unmistakably shows that Cairo and
Khartoum views were continuously put before the Foreigrr Office
by Sir Herny McMahon, and before the War Ofrce by General
Maxwell, the G.O.C., Egypt. Further, Wingate himself in extensive
private correspondence with Lord Stamfordham, Sir Clive Wigram,
Lord Cromer and others endeavoured to expound and advance their
views. In the War Office, Cairo and Khartoum had a valuable and
zealous sympathiser, Lieutenant-Colonel A. C. Parker, Kitchener's
nephew,25 who had served in Egypt and was later to take part in
the Hijaz operations and to be the civil governor of al-Arish it t9r7,
during Allenby's advance into Palestine' His views are set out in a
note on The Arab Moaement, which shows him to have been a strong
advocate of a descent on Alexandretta and the occupation of Aleppo,
and of satisfying Arab claims by buying the French out.28 This idea
was put to a committec composed of representatives from the Foreign
Office, the India Office and the lVar Office, set up to concert a policy
against Picot's forthcoming visit to London. Sil Arthur Nicolson, the
permanent secretary at the Foreign Office, rejected the idea as im-
possible and, Parker reported to Clayton, expressed the view that the
sharif's movement was incoherent and unreal.27 Indeed, the Foreign
Office and the India Oftce were at one in their hostility to any pan-
Arab scheme under British auspices. Grey agreed with Austen
Chamberlain that such a scheme would be a useless and embarrassing
liabitty and would make agreement with France impossible. Picot
met the committee on z3 November r9r5, and declared himself
sceptical of any Arab movement. He claimed for France the whole
20
 CAIRO AND KHARTOUM ON THE ARAB OUESTION
of Syria and Palestine, less the Holy Places, and declared that Mosul,
Baghdad and Basra should satisfy the Arabs. His move was a shrewd
one. Since the British were so keen on Arab support, should they not
themselves make some efiort to satisfy Arab claims? He, for his part,
offered Mosul which he claimed to be in the French sphere; let the
British offer Baghdad and Basra. The prospect, held out to him, of a
large-scale desertion of Arab troops from the Ottoman armies, failed
to tempt him, and an inpasse was reached.zs Immediately afterwards
Parker, as he wrote to Clayton, began preparing a paper, to be signed
by General Callwell, who was not, as he put it, 'exactly red hot yet'
for the Arab movement, which threatened dire catastrophes - Moham-
medan uprisings in British possessions, withdrawal of British forces
from France, etc. - if the sharif's demands were not immediately
granted.so These exaggerations - if they indeed met with Callwell's
approval - failed to move Picot, and we find Clayton writing to
Parker on ro December that if progress was to be made Picot had to
be replaced.so In the event, of course, as is well known, a compromise
was reached which, in Syria, meant that the territory of the four
towns of Damascus, Homs, Hama and Aleppo would constitute an
Arab state under French influence.3l
It is this latter provision, that the French were to be the pre-
dominant power in the territory of the four towns, which, from the
beginning, gave the Sykes-Picot Agreement a bad name with the
ofrcials in Cairo and Khartoum, not because it conflicted with the
so-called 'McMahon pledge' to the sharif or prevented, or even de-
layed, agreement with him; but rather because it meant a setback
to their scheme of a middle east entirely under British tutelage.
From the very start of Anglo-Sharifian negotiations, the British side
were quite aware that the sharif's demands, in respect of territory,
were, for the purposes of bargaining, pitched very high. 'He knows',
wrote Storrs in a note of 19 August r9r5, in a comment on a letter
which set out the sharif's demands, 'he is demanding, possibly as a
basis for negotiation, far more than he has the right, the hope, or the
power to expect'.8z The ambiguities of Anglo-Sharifian diplomacy
were to be the occasion, in later years, of much controversy, but at the
time the British officials in Cairo, made aware by the Foreign Office
of possible French claims and of the need for caution, framed their
proposals to the sharif in such a manner that they could be consistent
with any possible Anglo-French agreement - which at the time still
remained to be negotiated. Reporting on his 'pledge' to the sharif that
2t
 THE CIIATHAM HOUSE VERSION
the four towns of Damascus, Homs, Hama and Aleppo would form
part of the Arab state, Sir Henry McMahon stated that by adding the
qualification that Great Britain cciuld give assurances only in regard
to these territories 'in which she can act without detriment to the
interests of her ally, France', he was trying to provide for possible
French claims, the extent of which he did not know.88 Al-Mirghani's
letter to the sharif, mentioned above, for all its rhetoric was yet careful
and deprecatory about discussing precise territorial boundaries. 'In
what they told you before', al-Mirghani wrote, 'that the discussion of
the frontier question was premature, they meant by saying this that
the Arabian government had not yet come into existence and that the
most important problem was first to have it brought to life and that
any other question was secondarY'.3a Commenting on the course of
the Anglo-French negotiations - and, it would seem, before the
French made their concession on Syria - Wingate wrote that even if
the French demands were all conceded, the British could not be
accused of a serious breach of faith with the sharif.85 In a letter to
Clayton of the following April, Wingate reiterated that he was not a
believer in 'a consolidated Arabian kingdom under the sharif': 'Of
course', he went on, 'any such notion is altogether remote from my
real views, and it has suited me, as I believe it has suited all of us, to
give the leaders of the Arab movement this impression'; but impres-
sions had to be distinguished from actual undertakings: 'we are quite
sufficiently covered by the correspondence which has taken place to
show that we are acting in good faith with the Arabs as far as we
have gone'.so When agreement was finally negotiated, Clafion
grudgingly admitted that there was no conflict between the two sets
of undertakings. 'Luckily', he wrote, 'we have been very careful
indeed to commit ourselves to nothing whatsoever [i.e. in respect of
Sharifian claims]'.sz Again Hogarth, who had intimate knowledge of
the situation, writing ten years after these events, recorded that 'few
of us' believed that the sharif was 'the spokesman of one united
Arab nation about to rise from the ashes of the war'. 'We did not
believe', he continued, 'that, either under him or under anyone else,
would it so rise united. Therefore neither to him nor to any other
Arab did we ever explicitly guarantee or even promise anything
beyond liberation from the Turk'. 'We are guiltless, therefore', he
concluded, 'of any betrayal of King Husein' The sole condition of his
action - that he be freed from his Ottoman overlords and recognised
as an independent sovereigrr - has been fulfilled'.38 Furthermore, it is
aa
 CAIRO AND KHARTOUM ON THE ARAB QUESTION
doubtful if the sharif was really much interested in territorial conr-
mitments. When he replied to McMahon's 'pledge' he refused, it is
true, to concur in the former's conditions and qualifications, but it is
highly interesting to note that his messenger reported to Storrs that
his son Abdulla strongly emphasised the point - obviously with the
intention that his words should reach the British authorities - that
the 'reservations contained in the written message should not be
taken too seriously'.8o The impression is strong that the sharif,
aware of his weak and isolated position in the Muslim world, and yet
strongly tempted by the prospect of a caliphate, was willing, on any
terms or no terms at all, to start something, provided he could involve
the British government in his own fortunes. Is this not the most con-
sistent explanation of his willingness to join the British side, even
when his correspondence with McMahon showed that the tangible
advantages of such a course were minimal? The weakness of his
position and the temptation of the caliphate may have inclined him
to disregard, and dismiss for the moment, the unsatisfactory and
unsubstantial character of McMahon's pledge, but he may also have
been tempted into this easy opportunism by the weakness and
duplicity of his servants. Towards the end of 1916 the sharif had
himself proclaimed king of the Arabs, and when the British queried
the title he replied that according to his agent in Cairo, al-Faruqi, the
high commissionerhimself had approved it. Investigation showed that
al-Faruqi, to enhance his own importance and the value of his
services, had a habit of occasionally reporting to the sharif interviews
with the high commissioner which had never taken place and, what is
even more interesting, that he was'apt to put into the mouth of Sir
Henry things said to him by more junior people'.4o Since the sharif
himself cancelled written messages by means of oral, it would have
seemed natural to him that the British government should use his
agent for messages which it did not care to send in writing. The
schemes which the sharif mooted before proclaiming his rebellion in
June 1916 are sufficient indication of the drift of his policy. In February
1916 the messenger bringing a letter from the sharif also brought a
verbal message from Abdullah. Abdullah, said the messenger, wanted
{3,ooo for a scheme. The scheme consisted in choosing a powerful
Islamic committee who would proceed to offer his father the
caliphate.{l A little while later, the sharif asked for British help to
start operations in Syria. Discussing the scheme - which was turned
down - Wingate allowed that it was more convenient for the sharif
23
 THE CHATHAM HOUSE VERSION
to confine his operations to the Hijaz but, he observed, 'it must be
remembered that his desire to strengthen his positiou in the Syrian
hinterland is intimately connected with his aspirations to the
khalifate, and that these latter aspirations are at best as important
an influence on his actions as his hostility to the Turks'.{3
Clayton, as has been seen, granted that between the Sykes-Picot
Agreement and McMahon's offer to the sharif there was no contra-
diction, and if he knew - as he must have - the methods and ambi-
tions of the sharif, he need have had little to exercise him about a
breach of faith. Yet during the negotiations in London he expressed
his disquiet and dissatisfaction at the course they were taking. In a
letter of 14 January 1916 to Wingate he remarked that the proposed
settlement made things very diffcult and that it was'hard to see how
we can go on negotiating much longer, without laying ourselves open
to a charge of a breach of faith, unless we honestly tell the Arabs
that we have made Syria over to the French. The ways of our govern-
ment', he concluded, 'are truly marvellous'.as A few days later, he
was writing that 'some of our Syrian friends' seem to have realised that
'we have handed Syria over to the French', and that he was expecting
trouble. They should, he thought, be told so direct and advised to
settle with the French.'{ Yet when agreement was finally reached in
May 1916, he was all for keeping the arrangement for the time being
secret 'from our Arab friends'.16 This embarrassment over the Sykes-
Picot Agreement as at some shameful and dishonourable thing is the
first intimation of a later and widely prevalent British attitude. How
to account for it in Clayton? He speaks, \rye may notice, of 'our Arab
friends', of 'some of our Syrian friends'; can it be that his embarrass-
ment was not so much over contradictory undertakings as over hopes
- now doomed - which may have been earlier aroused among Syrian
Muslims like Rashid Rida or Synan Christians like Faris Nimr, who
were either keen for the British connection per se as the latter, or
wished to use it as a defence against French ambitions like the former,
hopes which were based on what Clayton himself attempted to bring
about? But there was no need for concealment, for a letter from Rashid
Rida of February 1916 to Wingate's Arabic secretary tells us that'the
English people here say openly that France insists on the occupation
of Syria or the northern part of it and that it is quite impossible to
break up with her on this account'.ao Clayton's talk of 'our Arab
friends' and 'our Syrian friends'brings into view another ambiguity
in Anglo-Sharifian diplomacy. Formal negotiations, such as they
24
 CAIRO AND KHARTOUM ON THE ARAB QUESTION
were, had been carried on with the sharif, but the sharif, however
much he claimed to represent all the Arabs, had in fact no authority
or standing to do so. The sharif, said a note on the Arab queslion
which seems to date from the beginning of 1916, 'though he has always
written as spokesman of the Arab nation, is not, so far as we know,
supported by any organisation of Arabs nearly general enough to
secure throughout, or indeed in the larger part of the Arab area, the
automatic acceptance of terms agreed to by him'.'? The sharif,
furthermore, was by no means the first, on the Arab side, to initiate
contacts with Britain. These contacts, in Cairo, had been made by
Synan immigrants and their organisations, such as the Decentralisa-
tion Party, which at the outbreak of war had sent, with the know-
ledge of British officials, two agents to Syria and Mesopotamia to
gather intelligence and carry out anti-Ottoman activities.{t The
importance of these Spians in British eyes is indicated by the fact
that, later on in the war, they were the recipients of an important
declaration of policy - the Declaration to the Seven.'0 Important as
these men were, yet they too could hardly claim to be fully repre-
sentative, so that Clayton rvas justified in observing that 'no Arab
central committee exists in a form capable of putting forward definite
proposals, or appointing delegates, who could be considered repre-
sentative of Arab as distinct from Sharifian views'.6o This absence
of a single authoritative body, this multiplicity of opinions and claims
able to command official attention could not but darken counsel and
blur the line between ofrcial undertakings and unofrcial wishes,
leading, in the end, to a maze in which were inextricably confused
hints and declarations, disappointed hopes and conscientious scruples.
And here may lie the explanation of Clayton's embarrassment.
The progress of the war and its uncertain prospects made Clayton
recur - after policy had been settled for the time being by the signa-
ture of the Sykes-Picot Agreement - to the vital importance of the
Arabs. He was on a visit to London in the summer of 1916, and there,
as he wrote to Wingate, 'made the texts of any serrnons which I was
able to deliver at home. "Do not forget that Germany would sacrifice
much (indeed almost anything) to keep her hold on Turkey - Berlin
to Baghdad, Basra, Persia, Afghanistan, India, is the keynote of
German Welt-Politik . . . Granted the above, our Arab policy is one
of the big cards - if not the biggest in our hand and our main weapon
against the habitual Moslem sympathy for the Turk"'.51 The next
opportunity to attempt an alteration of Arab policy came in the
25
 THE CHATHAM HOUSE VERSION
spring ol rgrl when Sykes and Picot proposed to visit Egypt and the
Hijaz to display Anglo-French unity and jointly to deal on the spot
with difficulties and contentions. Clayton then pointed out that the
sharif had not been officially informed of the Sykes-Picot Agreement
and that, as an alternative to telling him about it, he should be told
that Sykes and Picot were coming to examine the Syrian question
de nouo. The Foreig-n Office rejected the advice.62 One may speculate
on the results of such a step, had it been taken; official ignorance not-
withstanding, the sharif would have drawn quite interesting con-
clusions from this denial of the understanding between France and
Britain which he already knew to exist. Clayton knew that the sharif
was aware of the Sykes-Picot scheme, and would take advantage of
the absence of such official notification to pretend that the matter
was not settled, and thus open a door to possible concessions.ss
Sykes and Picot went to Jadda, saw the sharif, and put the Agree-
ment in his hand; the three then came to the understanding that the
French position in Syria should be similar to that of the British in
Mesopotamia.s{ Clayton was quick to see the drawbacks of such an
arrangement, which were indeed real enough if one assumed Anglo-
French disagreement rather than agreement.
Had it only been a question of the British in Baghdad [he wrote] I do
not think any difficulties would have arisen as the king probably realises
that he has but little influence there, and would have been content to
allow us to do pretty well as we liked, A new element has been introduced,
however, by making the French position in Syria dependent on our
position in Baghdad, and this is likely to make the king and the Arabs
very much more attentive to what they may consider their rights and
interests in Baghdad than would have ever been the case before, and I
think may easily be a source of considerable embarrassment to us in
Mesopotamia.66

Here was another bad mark against the Sykes-Picot scheme.

At the time of Sykes's and Picot's visit criticism and dislike of the
Agreement swelled into a chorus. Colonel C. E. Wilson, the British
representative in Jadda, had been a fervent partisan of the sharif.
Urging more financial help for him in August 1916, he had said he
was convinced that the sharif was the right horse to back, being
probably the next caliph, and that to help him was a unique oppor-
tunity to acquire influence and control.so He now sent a letter full of
indignant pity for the poor sharif who was being asked to give his
consent to things he did not understand, and of solemn warning
26
 CAIRO AND KHARTOUM ON THE ARAB QUESTION
about Sykes's 'heavy responsibility' in getting him to do so. This
simple, trusting sharif who kept on saying that the word of Great
Britain was enough for him, that he would do what Sir Mark Sykes
wanted because he knew that Sykes would fight for the Arabs better
than he himself could do, that 'he was putting the whole weight and
responsibility of the future of the Arabs on Sir Mark Sykes',67 was
also capable of asking Sykes, through Faisal his son, in exchange for
the arrangement on Syria, to make Ibn Sa'ud and the Idrissi acknow-
ledge him as their king; Wilson records the episode, but does not
seem to appreciate its comedy. 'If we are not going to see the sharif
through', he warned, 'and we let him down badly after all his trust
in us, the very "enviable"(?) post of Pilgrimage Officer at Jeddah
[his ostensible office there] will be vacant because I certainly could
not remain'.68 Newcombe's voice was joined to Wilson's. Newcombe,
of the Military Mission, had a conversation with Fuad al-Khatib on
Sykes's and Picot's transactions, and his generous indignation was
aroused. The sharif could not understand these complicated matters
which they debated with him; four hours were not enough for him to
decide;60 therefore responsibility lay on the British government 'to
see the sharif or Arab Cause through to the end: otherwise we are
hoodwinking the sharif and his people and playing a very false game
in which officers attached to the sharifls army are inevitably com-
mitted and which I know causes anxiety in several officers' minds:
in case we let them down.'8o The muddle of Anglo-Sharifian relations
is again illustrated by this episode, for the same Fuad al-Khatib
whose piteous tale so moved Wilson and Newcombe apparently also
managed to convince Sir Mark Sykes that to hirn should go the credit
of getting the sharif to agree to the Sykes-Picot scheme. When in
rgzo Rashid Rida taxed him with this behaviour, Fuad swore a
heavy oath (bi'l-talaq) that he would now at last divulge the truth,
and stated that the sharif was in reality quite content with the Sykes-
Picot scheme, that he himself attempted to oppose it by informing
the British that the sharif was against it, and that only when he found
himself unable to make the sharif oppose the scheme did he go to the
British and convince them that it was really through his intercession
that the sharif came to accept the scheme.ol What to us seems a
labyrinth of cunning and double-dealing was, however, to Wilson and
Newcombe, a clear and straightfonvard issue: the Arabs, wronged
and betrayed, were exhaling their plaint by the mouth of Fuad
al-Khatib, and to this plaint it was their duty chivalrously to respond.
27
 THE CHATHAM HOUSE VERSION
Later, it became the mark of a tender and liberal conscience to be
pained at the mention of the Sykes-Picot Agreement. We here
witness a first manifestation of the sentiment. The voice of conscience
has always seemed quite loud in these Arab affairs. To those who
invoked it, it was always audible, unambiguous and imperious. The
case of Colonel Lawrence is well known. But it is surprising to see the
politic and well-informed Clayton speaking like a Wilson, or a
Newcombe: 'I cannot conscientiously', we find him declaring in the
spring of r9r8, 'carry out any line of policy which will go against our
pledges to the Arabs, and I can always return to Egypt [he was at
G.H.Q. in Palestinel if they don't want me, and should in many ways
prefer it as I have no axe to grind here'.cs As usual when conscience
is invoked we find, on further inquiry, that the moral and political
aspects of the question are by no means so clear-cut as to call for such
desperate, uncompromising manifestos. In the present case it was
Palestine and the activities of the Zionist commission which had
stirred Clayton's ire, and the ease with which he seemed to dis-
criminate what did from what did not go 'against our pledges to the
Arabs' in this matter is very remarkable.
As the war went on, objections to the Sykes-Picot Agreement were
pressed again and again with the authorities in London. In the
summer of rgr7, D. G. Hogarth, the director of the Arab Bureau,
prepared a note for them which argued the impolicy of proceeding
with the Agreement in the circumstances then obtaining. The
Agreement, Hogarth said, had favoured France to the detriment of
her allies not only in point of territory, but also because France stood
to gain her share of the Ottoman empire without being obliged to
fight in the middle east. Hogarth accepted that cogent reasons had
existed for signing the Agreement the year before, but he himself
was inclined to think that the situation w.u; now quite altered and
that 'much water had run under the bridge'. This, he noted, was not
the view of Sir Mark Sykes and Sir Ronald Graham, who were for
upholding the Agreement, but he would point out that Mesopotamia
was now under British occupation, that Russia wErsi no longer as
important as she was a year before, and that democratic America
had joined the war. Further, the Arabs and the Jews both wanted the
British rather than the French. Therefore, while certainly not desiring
entirely to exclude the French from the area, and disclaiming any
belief in Arab capacity for self-government, he yet wished to revise
the Agreement, principally so as to give Britain a stronger position
28
 CAIRO AND KHARTOUM ON THE ARAB gUESTION
both in Palestine and in Arabia proper.68 Wingate himself kept on
pressing at that time for the amendment of the Sykes-Picot Agree-
ment.o{ Again, in the autumn of the same year, Clayton, professing
anxiety at what the Turks might offer in order to detach the Arabs,
suggested that the French government should be urgently asked to
announce that they had no annexatory designs either in Syria or in
the Lebanon.os The Ballour Declaration - later to join the Sykes-
Picot Agreement in common execration by right-thinking persons -
was also invoked, and Clayton informed London that the under-
standing between Faisal and Weizmann would remain barren of
results until the two surviving parties to the Sykes-Picot Agreement
should recognise that it was no longer a practical instrument.60 The
Cairo officials' continuing dislike of the Sykes-Picot Agreement was
at last given public expression when Wingate, answering a query from
the sharif, disowned the Agreement in June r9r8.07 Justifying his
action to the Forergn Office he said that the Sharif had never been
officially informed of the Agreement; this of course was not exactly
the case, since Sykes and Picot had shown it to him, and the effect
of Wingate's message was stronger and ultimately more disastrous
to the sharif than if this had really been so. Concluding his telegram,
Wingate asked permission to tell the sharif without more ado that the
Agreement was dead for all practical purposes.ot Permission was
refused, but in a dispatch of the following September he could state
that he was not aware to what extent the terms of the Sykes-Picot
Agreement were still binding.ce
The existence of this dispatch indicates that by that time the long-
held misgivings of the Cairo ofrcials over the Sykes-Picot Agreement
had communicated themselves to the government in London. In
April r9r7 a committee of the imperial war cabinet which included
Curzon, Lord Robert Cecil, Austen Chamberlain, and Smuts, and
which considered British territorial desid,erata at the end of the war,
concluded that Palestine - which under the Sykes-Picot scheme was
to be internationally administered - as weU as Mesopotamia should
be under British control as this was necessary for the safety of the
empire.?o By the sutnmer of r9r8 'private advices' from London, as a
contemporaneous note by Symes put it, indicated that the Agree-
ment was in abeyance and practically defunct. A specimen of such
'advices' survives in the Wingate Paperc; a letter from George Lloyd
of ro October r9r8 in which he tells Wingate that the Sykes-Picot
Agreement was dead and that, had it not died, it would have created
29
 THE CHATHAM HOUSE VERSION
increasing difficulties in the future.?l This letter most accurately
reflected the official view. In answer to a request from the secretary
of state at Washington to provide information on the Sykes-Picot
Agreement, O. B. Laughlin, counsellor at the American embassy in
London, telegraphed on ro October - the very day Lloyd wrote his
letter to Wingate - as follows: 'I ascertained from the Foreign Office
that the agreement was actually made relative to spheres of influence,
but that conditions have rendered it practically a dead letter'. Four
days later, Lord Robert Cecil himself confirmed the statement of his
officials {or, as Laughlin reported, he said 'that this arrangement has
been rendered practically unworkable in its larger aspects by change
of conditions particularly by our entry into the war and that the
British government now naturally wishes to consult us with respect
to any such joint action in the Turkish empire'.?r
The note by Symes gives an idea of the future policy envisaged by
the Cairo officials. The Zionists and the Arabs would join in common
opposition to the French, the Zionists supporting the Arabs in Syria,
and the Arabs making way for the Zionists in Palestine. As for
Mesopotamia, the British meant to stay there, but since oPen annexa-
tions were now debarred by all kinds of solemn declarations, the
substance rather than the shadow of power would be secured there if
the sharif were installed as nominal ruler, and lip-service were paid to
the ideal of Arab unity. This was preferable to a mandate which
allowed intervention by European powers. Renunciation of formal rule
in Mesopotamia also meant that the British could strengthen their
hands against French political penetration in Syria and would allow
'syrian prejudice, Moslem partiality and Zionist opportunism to
combine and operate on behalf of pro-British arrd anti-Hun influences
throughout the Arab countries'.?8 In one way or another this prescrip-
tion was tried in the middle east in following decades, but British
interests did not conspicuously benefit. Lloyd George inaugurated the
series of experiments by trying - in vain - to talk the French into
believing that the Sykes-Picot Agreement was no more, or perhaps
had never really existed.
The views and attitudes of the Cairo and Khartoum officials had an
appreciable influence on the conduct of policy in r9r9, but this does
not exhaust their interest. The Middle Eastern Question in Britain
from r9r9 to 1948 was by and large an affair of officials: it did not
arouse any great public debate, as the Eastern Question did in the
nineteenth century, and ministers on the whole seem to have accepted

3o
 CAIRO AND KHARTOUM ON THE ARAB QUESTION
and to have been guided by the views of the officials: Chur hill in
r9zr, Austen Chamberlain in 19253, Passfield in t929, Eden and
Malcolm Macdonald tn tg37-9, Bevin in 1945-8 - the record of all
these seems to give substance to such an impression. And the Cairo
and Khartoum ofrcials of the first world war seem to have been
quite prominent in middle eastern administration and policy in the
following decades. Sir Stewart Symes, who during this period was
Wingate's private secretary, and who was to become chief secretary of
Palestine and governor-general of the Sudan, has a significant passage
in his memoirs:
It is noteworthy [he writes] how the members, at different periods, of
Sir R. Wingate's personal staff at Khartoum were distributed subse-
quently in the Arabic-speaking world. Of his private secretaries, Sir
ke Stack was governor-general of the Sudan and Sirdar up to the date
of his assassination in Cairo; Clayton proceeded on a special mission to
Ibn Saud and was chief British representative in Irak when he died; I
followed Clayton [as chief secretary, Palestine government]. Of our
assistants (Sir) Kinahan Cornwallis at this time was chief adviser to
I(ing Feisal and, alter the outbreak of war, returned as British Am-
bassador to Baghdad; (Sir) A. Keown-Boyd held key posts for a number
of years in the Ministry of the Interior in Egypt. . . . Each one of us [he
continued] had been given his initiation into oriental policies and the
conduct of public business by the same kindly and experienced chief.?r

When to this list are added the names of subordinates, associates and
successors, one can appreciate how a particular view of Arab policy
was transmitted, upheld, defended and publicised from decade to
decade until it acquired the venerable sheen of orthodoxy. The
literary Arabophiles, Colonel Lawrence and Miss Bell, cannot sustain
comparison with such weighty and durable influence: they supplied
the myth and the 'panacke, but little would have been accomplished
had the officials themselves not been the convinced and confident
upholders of the policy. Two examples, relating to ofrcials with
Sudanese connections, may be given in illustration. The first concer^.3
Sir Harold MacMichael, who became high commissioner in Palestine,
and it indicates for how long heavy disapproval of the Sykes-Picot
scheme persisted. In 1939 he was host in Jerusalem to his French
counterpart in the Irvant, M. Puaux. MacMichael, according to
Puaux, expressed his regret over the parcelling out of the near
east. He did not believe in a great Arab empire, let he nonetheless
deplored the existence of frontiers which did not favour economic or
3r
 THE CHATHAM HOUSE VERSION
cultural traffic. ' "They were wrong to partition this region" ', Puaux
reports him as saying, '"it would have been better to entrust the
whole of it to one country"; after an interval, he added, "To you, or
to us".'75 The second concerns a man in many respects quite different
from Sir Harold MacMichael: Sir Douglas Newbold, whose Sudan
career culminated in the civil secretaryship. Readers of. his Li,fe anil
Letlers will note with interest how fervent a supporter he was of pan-
Arabism: his simple creed was that 'the Zionists and the French are
the real stumbling blocks in the middle east'.?o Could we not, on this
showing, conclude that Arabophilia - whether sentimental or utili-
tarian - as a doctrine and a line of policy, found its main source and
strength in the Anglo-Egyptian Sudan?

32
The Capture of Damascus,
r October r9r8

When Colonel Lawrence renounced the world his ambition, as readers

ol his Letlers know, was to become a great writer, to exchange the
uncertain and treacherous triumphs of war and politics for the sure
and lasting reward of artistic creation. The attempt does not come
off, and Seuc n, Pill.ars is a work seething with rancour and resentment,
full of advocacy and rhetoric, firmly imprisoned in the world of
practice from which its author ceaselessly proclaimed his yearning
to escape. As a work of. art Seaect. Pillars is deeply flawed, but since
it is impregnated with that demonic quality which is manifest in
Lawrence's career in war and politics, it exerts the same powerful
fascination over those who come into contact with it. Consider, for
instance, the illustrations which Eric Kennington executed for Seuen
Pillars on Lawrence's commission: they are pictures of heroes and
paladins, exemplars of loyalty and chivalry, in drawing which
Kennington was entirely influenced and governed by what Lawrence
wrote. But when $'e compare what these men really were, the
mediocrity of some, the duplicity of others, the ordinariness of most,
with Kennington's superior beings we are repelled as by a piece of
deception which the artist not so much practised as, medium-like
and in the measure of his sensitivity, was wished into practising by a
potent but impure spirit. Terence Rattigan's play, Ross, at a much
greater distance has been touched by the same influence to the detri-
ment both of factual and of imaginative truth. In a scene where
Allenby and Lawrence dramatically confront one another, the latter
comes to mention the Sykes-Picot Agreement and the dialogue
proceeds as follows:
Allenbyt I've never heard of it.
Laurewe: No? Nor, for the moment, has Feisal, but if he finds out there'll
be hell to pay. So it's vital that he and his people should continually be

33
 THE CHATHAM HOUSE VERSION
fed, from now on, the right kind oI lies by the right kind of liar. There-
fore this man of yours has to be a very senior o6cer. Then his lies u'ill
have real weight.l

The rejoinder is meant to be a rapier-thrust dealt by one consum-

mate duellist to another, its purpose is to illuminate a situation which
is extraordinary and characters who are exceptional. The tension
within and between the protagonists depends on the truth of the
assumption that the Sykes-Picot Agreement was a shameful betrayal
of the Arabs; since this is not the truth, but merely a slogan which
Lawrence found useful to propagate, the drama becomes histrionics
and the taut dialogue sags into the tedious rhetoric of political
controversy.
Seuen Pillars conforms to the canons of dramatic art: the small,
accidental beginnings, the vision in the desert, the years of organising,
contriving, fighting, willing and imposing mastery, culminating at
last in the investment and capture of Damascus, terminus and ful-
filment of a superhuman efiort. It is as if this event were the pre-
ordained consummation through which all the past incidents of the
desert war acquire their meaning and coherence. If Seuen Pillars
were the true history it purports to be, this would be a remarkable
example of nature imitating art. Its climax has inspired Mr Rattigan
to give us a picture of Lawrence at the gates of Damascus dictating a
dispatch to Allenby in which, after telling him that he and his
Arabs had destroyed the Fourth Turkish Army, the sardonic and
jocular hero goes on to say:
In view of this situation it is my intention to enter the City of Damascus
at first light tomorrow and to hold it in the name and authority of Prince
Faisal. I assume this action will meet with your approval - an assumption
forced on me by the fact that should it not it will anyway be too late for
you to inform me.r

The film Laurence of Arabia, plodding ham-handed in Super Pana-

vision through its cinematic commonplaces, has naturally fallen for
Seuen Pillars' magrc ending and allows its audiences to assume that
Lawrence captured Damascus. But it is precisely in respect of this
crucial episode of the book that we have Lawrence's clear admission
that his account, in part at any rate, is fictional. Commenting on a
book by Mr Robert Graves which described his Arabian adventures,
Lawrence had this to say about the Damascus section: 'I call this
section extremely good. Swift and fine in its writing and simple too.

34
 THE CAPTURE OF DAMASCUS, r OCTOBER r9r8
But I was on thin ice when I wrote the Damascus chapter and any-
one who copies me will be through it, if he is not careful. S.P. lSeaen
Pillars) is full of half-truth: here'.8 Nature, then, has not imitated art;
rather it has been doctored and touched up with a story-teller's skill;
but we remember that Lawrence claims to tell not just a story, but a
true story.
The Damascus episode as narrated in Seaen Pillars is, then, a cntx
in judging whether Lawrence succeeded in his attempt to find in art
the fulfilment which eluded him in war and politics, to distil out of
the bitter discordance of his adventures, for his own solace and the
world's admiration, a transparent thing of truth and beauty. He
seems to have failed since, on his own admission, this episode - the
keystone of his narrative - is heavy and opaque with deliberate
suppression. To establish what happened at the capture of Damascus
is necessary in order to understand Lawrence and his literary artefact;
also, since the episode is of some importance, it is worthy of the
historian's attention both for its own sake and for the light it throws
on the Syrian question at the end of the first world war and the
behaviour of the difierent parties involved in it. In a book on England
ancl tke Middl,e Easl, published in 1956, I brought together a certain
amount of circumstantial evidence to show that Damascus could not
have been captured by the Sharifians, but rather that, after the
evacuation of the city by the defeated Ottomans, they were allowed
to occupy it and to claim that they had captured it; I then went on to
argue that this act of commission - whoever was responsible for it,
was - more than any number of ambiguous or contradictory pledges
and agreements - instrumental in eroding the British position in
Mesopotamia and in creating the bitter and tangled situation be-
tween British, French and Sharifians in Syria which General Gouraud
resolved by force of arms at Khan Maisalun in July r9zo. The evidence,
it is true, was neither direct nor definitely conclusive, but it was fairly
strong and deserved - because of the substantial conclusions which
flowed from it - careful and critical scrutiny. It is curious however
that writers on this period of middle eastern history have continued
in their wonted way exclusively to balance and weigh carefully agree-
ment against undertaking and pledge against intention as though
Anglo-Arab relations were a branch not of political history but of
ethical theory. In her Britain's Moment in the Mid,d,le East r9t4-
1956, published in 1963, Miss Elizabeth Monroe devotes no attention
to the capture of Damascus or to the events which immediately
35
 TIIE CHATIIAM HOUSE VERSION
followed it. It is true that in discussing the subsequent acrimonious
exchanges at the Peace Conference she quotes a sentence from a report
by Sir Gilbert Clayton, Allenby's chief political officer, to the effect
that 'Our permitting the occupation of Damascus by the Sharifians
has allayed some of the suspicion of British intentions' but Miss
Monroe does not discuss the significance of the statement which
remains in her narrative odd and unexplained.a Professor Z. N. Zeine
who published The Struggle for Arab Ind,ependence in 196o, claiming,
in his preface, that there was 'actually no serious historical work,
entirely and exclusively devoted to a detailed study of this period,
based both on European and Arabic sources', again does not attempt
to elucidate the sequence of events leading to the capture and
occupation of Damascus but states: 'At midnight fon 3o September
r9r8l, the Desert Mounted Corps was at the gates of the city. At
dawn the next day, Arab troops of the emir Faisal's army, under the
command of Nuri Pasha al Sa'id, followed at 6.oo a.m. by the 3rd
Australian Light Horse Brigade with General Wilson in command,
occupied Damascus'. This highly misleading statement is then
followed by a passage in which the complicated events are so tele-
scoped, garbled and hopelessly confused that considerable labour is
required to restore their proper sequence and significance.6 In his
Syria and Lebanon under the French Mandate published in 1958, Mr
S. H. Longrigg is considerably briefer than but as misleading as
Professor Zeine. 'By the evening of 3oth September', he writes, 'a
senior Sharifian representative (the amir Nasir), with tribal escort,
reached the outskirts of Damascus. Led by the Iraqi oftcer Nuri al
Sa'id, Arab forces entered the town early on r October, followed a few
hours later by British troops'. But what distinguishes Mr Longrigg's
narrative is that he goes out of his way to dismiss, in a footnote, as
though it were an idle tale of the bazaar, the idea that Damascus was
deliberately left to the Sharifians to occupy: 'There does not seem to
the writer to be adequate foundation', he asserts, 'for the oft-repeated
story that the entry of troops into Damascus was purposely delayed
so as to enable the amir to have the honour.'c The source and the
cxact tenor of the story which Mr Longrigg so dismisses are un-
specified, but it is fair to observe that his language implies, if it does
not outright assert, that if the Sharifians occupied Damascus, it is
because they captured it.
But a review of the recent literature, instructive though it may be,
is not my chief purpose here. This is to examine some fresh evidence

36
 THE CAPTURE OF DAMASCUS, I OCTOBER I9IB
which bears on the capture of Damascus and the events which followed
it. At the end of September r9r8, Allenby, having defeated the
Ottoman forces in northern Palestine, prepared to march on and take
Damascus. To achieve his aim he had at his disposal two main bodies
of troops, namely the Australian Mounted Division under the com-
mand of Lieutenant-General Sir Harry Chauvel, who also, directly
under Allenby, commanded the Desert Mounted Corps - as the com-
bined body of troops marching on Damascus was known - and the
Indian 4th and 5th Cavalry Divisions under the command, respec-
tively of Major-General Sir G. de S. Barrow and of Major-General
H. J. M. Macandrew. These troops were supplemented by a small
French contingent and by Faisal's so-called 'Northern Arab Army'
which consisted of a small regular contingent - six hundred according
to Sir Hubert YoungT - accompanied by an indeterminate and
fluctuating number of irregulars and camp-followers. All these troops
were approaching Damascus in a fanlike movement from the south.
Their operations are lucidly described in the oficial British and
Australian War histories but these narratives may be supplemented
and amplified with the help of the details contemporaneously re-
corded in the War Diary oI the General Stafi of the Australian
Mounted Division and of those of its units who most directly par-
ticipated in the capture of Damascus.s The interest of these Diaries
is enhanced by the fact that the Australian contingent had been
allotted the task of cutting the enemy's retreat north of Damascus
and that Australian units were much involved in the events inside
Damascus which took place after the capture of the city.
Orders for the march on and the capture of Damascus were issued
at Kuneitra on z9 September early in the afternoon. 'Chauvel's
immediate purpose, as his divisions advanced from the Jordan and
up the Pilgrim's road further east, was', in the words of the Australian
war history, 'to isolate the city by seizing the Barada gorge and the
northern route to Homs. This was the mission of the Australian
Mounted Division, while Barrow and Macandrew, when the exits
were closed, were to press into the city from the south'.e From the
Diaries it appears that among the orders issued at Kuneitra was one
to the effect that care was to be taken to avoid entering Damascus if
possible; that unless forced to do so for tactical reasons, no troops
were to enter Damascus; and that pickets were to be posted on all
roads into Damascus to ensure performance of this order. By the
afternoon of 3o September the Australian troops were in the vicinity
37
 THE CHATHAM HOUSE VERSION
of Damascus. The War Diary of the 3rd Australian Light Horse
Brigade - commanded by Brigadier Wilson shows that the brigade
-
was then ordered to move north-east of Damascus as rapidly as
possible and on to the Homs road, as it was not the policy to enter
Damascus if it could be avoided. But Brigadier Wilson decided, in the
words of the British war history 'that it was impossible for him to
carry out the instructions he had received to avoid Damascus'.lo He
was convinced, explains the Australian war history 'that, if he per-
sisted iu carrying out his orders to work round Damascus, his brigade
would become unduly scattered, and he would probably fail either to
cut the road to Homs in time to prevent a heavy withdrawal of troops
and material from the city, or to intercept the troops of the Fourth
Army'.rr In the early morning of r October, therefore, the 3rd Brigade
crossed the northern part of Damascus, and it is to them that
Damascus may be said to have formally surrendered.l2
Neither the War Diaries nor the official war histories - which latter
mention the order to avoid Damascus not in relation to the general
plan of attack issued at Kuneitra, but only when discussing the
movements of the 3rd Light Horse Brigade - explain why Damascus
was to be avoided. The reason could, of course, have been either
military or political. It may have been decided not to go into
Damascus from the south, but rather to encircle the city and prevent
the escape of Ottoman troops. This may explain why the orders issued
at Kuneitra allowed entry into the city lor tactical,reasons, but it does
not explain why Wilson of the 3rd Brigade, deploying his troops from
the north-west to the north-east, should have been reluctant to do
so through the only practicable road (which crossed the northern end
of the city) until he referred the problem to divisional headquarters.
The war diaries are silent about any military considerations which
might have made Brigadier Wilson, for instance, nervous of entering
a city swarming with hostile troops whose reactions might be strong
and unpleasant. On the contrary, as we see from the Australian war
history, Brigadier Wilson was concerned lest he might not be allowed
to cross Damascus, and thus become incapable of accomplishing his
task. From this it would seem that avoidance of Damascus u'as
based on political rather than military reasons and that at least at one
point military necessity conflicted with what must have been
political calculation. The war diary of Bourchier's Force - composed
of the 4th and rzth regiments drawn from the 4th Light Horse
Brigade and commanded by Colonel Bourchier - afiords further
38
 THE CAPTURE OF DAMASCUS, I OCTOBER rgIS
support for the view that the reason for avoiding Damascus was
political rather than military. The force was deployed against
Damascus on the south of the city. On the afternoon of r October,
when it was quite clear that the city was no longer in the hands of
the enemy, we read in the war diary that Colonel Bourchier was
forced, in the interests of discipline, and on account of the extra-
ordinary noise and apparent unrest in Damascus, to place guards on
public institutions, consulates, hospitals and the like, but that since
the complete control of the town was in the hands of the Sharifian
forces, Colonel Bourchier was ordered, in the early evening, to get in
touch with them and arrange for them to take over guard duties. It
would seem then that its presence within Damascus was not part of
the original instructions of the force, that Colonel Bourchier was com-
pelled to intervene by the emergency and that divisional headquarters
were anxious to hand over the city to those on whom complete control
of Damascus had been bestowed. We thus find that both the 3rd
Rrigade and Bourchier's force, confronted with different problems at
difierent stages of the battle had yet to be guided by an identical
directive quite unrelated to their actual situation, and from which, in
the end, they had to depart; namely, the general directive, issued at
Kuneitra to avoid entering Damascus. That the order was political
in character is clearly the implicit view of the official Australian war
historian when, in the course of his narrative, he writes: 'Meanwhile,
as the Arabs, under their compact with the Allies, proceeded to take
over control of the city. . .'.13
There was, however, no such compact. But there was the so-called
Declaration to the Seven, an official statement made in July r9r8 to
seven Syrians in Cairo in which the British government pledged itself
to recognise 'the complete and sovereign "independence" of any
Arab area emancipated from Turkish control by the action of the
Arabs themselves'.r4 Whatever the original status and significance of
this unilateral declaration to seven individuals - on a matter which
did not concern Great Britain alone - it seems to have been later
used - whether on Allenby's authority, or on that of superiors in
London is still to be established - as a convenient peg on which to
hang territorial claims which the Sharifians were to be allowed - and
encouraged - to make. Hence, it may be suspected, the order to the
Australians to avoid Damascus, hence the necessitv to prove that the
Arabs were the first to enter the city. The Sharifians - and therefore
Lawrence - must have known the role for which they had been cast.

39
 THE CEATHAM TIOUSE VERSION
Nasib al-Balai, Faisal's Damascene follower who was with him in this
campaign, later informed the historian Muhammad Kurd Ali that,
following the Declaration, he was sent to recruit Druzes and Hauranis
so that the Northern Arab Army might enter Damascus in force and
in proper style.r6 ln Seoen, Pillars Lawrence taunts these Druzes with
their mercenary motives and says that they started rioting and
looting after he had'sharply refused' to reward them for their'tardy
services'.r0 Nasib al-Bakri's account explains Lawrence's enigmatic
reference to their tardiness, and if these Druzes were at the last
minute recruited for purposes of representation, it was imprudent to
refuse to pay for their services and unkind to hold them up to
ridicule before his literate and sophisticated audience.
As has been seen, the order not to enter Damascus had, owing to
the accident of battle, unavoidably to be disregarded in two instances:
once in the early morning of r October when the 3rd Light Horse
Brigade had to cross the north of the city, and once in the afternoon
of the same day when Bourchier's force had to intervene in order to
protect life and property. It could not therefore be unequivocally
said - as might have been originally desired - that the Sharifian forces
had been the first in Damascus. The official War Office communiqud
as published inTheTimes on 3 October declared that'Troops of the
Australian Mounted Division entered Damascus during the night of
September 3o' and added that 'At 6 a.m, on October r the city was
occupied by a British force and by a portion of the Arab army of
King Hussein'. It is instructive to set out side by side with this
communiqud other contemPorary official records. They indicate well
the uncertain and equivocal situation in Damascus which the com-
muniqud glossed over. An official bulletin seen by Captain William
Yale, who was then in or near the theatre of war, is instructive.
'On the morning of October rst', it said, 'the town was entered by our
mounted troops and the Arab army. After guards had been posted,
the troops were withdrawn from the town'.u An Admiralty informa-
tion bulletin declared: 'Damascus was entered by Australian troops
during the night of the 3oth September. . . . After the surrender all
the Allied troops, with the exception of the necessary guards were
withdrawn, the administration of the city being left in the hands of
the local authorities'.ls In a telegram from the U.S. consulate general
at Cairo the Department of State was informed on 5 October: 'The
representative of the Hediaz government took over Damascus from
the British on October rst'.r0 It is curious, lastly, to quote a footnote
40
 THE CAPTURE OF DAMASCUS, r OCTOBER rgIS
in the British war history which adds yet another version of the
capture of Damascus. 'There has been some controv€rs5r', the foot-
note reads, 'as to which troops were the first to enter Damascus. It
seems clear that a number of Sharifian irregulars were in the city by
midnight on the 3oth September. They did not, however, venture to
attack the Turks to whom they were indistinguishable from the local
Bedouin who had been demonstrating for some days'. So true and so
convenient is it that l,a natit lous l,es chats sonl gzo's. 'The advance
guard of the 3rd L.H. Brigade', concludes the footnote, 'entered the
city before 6.3o a.m. on lst October'.ro To the ambiguities of official
communiqu6s and the judicious hesitations of ofrcial histories may
be added ministerial reticence. On 3r October r9r8, Lord Robert
Cecil, answering a Member, Theodore Taylor, who had asked 'under
what flag the city of Damascus now lives', declared: 'General
Allenby was authorised on rst October to allow the Arab flag to be
hoisted at Damascus'.2l But these ambiguities and hesitations and
reticences have, of course, been swept aside by the bold claim that
Damascus was an Arab conquest. The claim began to be made very
early.TheTimes of. r7 October published an article which came'From
a Correspondent'and which purported to deal with'the final Arab
advance on Damascus'. Sent from Cairo on 8 October, it was most
probably written by Lawrence. It displays a touch of his usual
meretricious flamboyance when it describes the incompetent ex-
Ottoman ofrcial who for a few days was head of the Sharifian
administration in Damascus as'the senior descendant of Saladin'.
Entitled 'The Arab March on Damascus', it stated that Damascus
was entered on the night of 3o September, 'the Arabs being the first
troops in'.
Let us now turn to Seaer Pill.ars and see how Lawrence's account
tallies with the evidence here reviewed. We notice a paucity of actual
detail but many hints here and there that Damascus was an Arab,
was Lawrence's, conquest. The brief summary of its conquest which
is prefixed to Book X says: 'We moved behind Deraa to hasten its
abandonment. General Barrow joined us; in his company we advanced
to Kiswe, and here met the Australian Mounted Corps. Our united
forces entered Damascus unopposed'; the coda which concludes the
whole work begins: 'Damascus had not seemed a sheath for my sword,
when I landed in Arabia; but its capture disclosed the exhaustion of
my main springs of action'; reporting an interview he had with
Allenby on 20 September r9r8, he makes the general persuade him
4r
 THE CHATHAM HOUSE VERSION
'not to carryr out my saucy threat to take Damascus, till we were dl
together';'we, the Arab leaders', he writes when the armies had
reached the gates of Damascus on 3o September, 'had waited for the
slower British';zz after the entry into Damascus on r October he
meets General Chauvel: 'I described the excitement in the city, and
how our new government could not guarantee administrative services
before the following day, when I would wait on him to discuss his
needs and mine. Meanwhile I made myself responsible for public order :
only begging him to keep his men outside, because tonight would see
such carnival as the town had not held for six hundred years, and its
hospitality might pervert their discipline'; Chauvel - who under
Allenby was in command of the whole campaigrr - 'had no instruc-
tions what to do with the captured city'; he asks Lawrence's per-
mission to drive round the town, and is only concerned with empty
points of ceremonial which are occasion for Lawrence to poke fun at
him: 'In place of an "entry" he would make a "march through": it
meant that instead of going in the middle he would go at the head, or
instead of the head the middle. I forgot, or did not well hear, which:
for I should not have cared if he had crawled under or flown over his
troops, or split himself to march both sides'.z8 This passage is clearly
Kennington's source for his drawing called 'Caesar', which shows a
gigantic pompous and monocled officer, a drawn sword in his hand,
strutting astride a crowd of marching soldiers. But apart from such
hints and jeers all that we gather from Lawrence's narrative is that
'Allenby hoped that we would be present at the entry' because 'he
knew how much more than a mere trophy Damascus was to the
Arabs'. The next thing we are told is that Lawrence is driving in the
streets of Damascus, surrounded by crowds, 'joy shining in their
eyes'.!{ There is nothing about the orders to the Australians not to
enter Damascus, nothing about the 3rd Brigade, or Bourchier's force;
indeed the way he speals of Chauvel, of keeping the Australians out
lest their discipline be perverted, manages to convey an impression
the exact opposite of what, if the Australian war diaries are to be
believed, redly happened. And it is difrcult to imagine that these
diaries have falsified the course of events. It remains to add that the
manuscript of Setten Piltars contains a brief but candid and explicit
sentence which goes a long way to reconcile Lawrence's account with
that of the War Diaries'
According to Seten Pillars, Allenby had another reason for desiring
the Sharifians to be present at the entry to Damascus. It was a
42
 THE CAPTURE OF DAMASCUS, r OCTOBER rgrS
'prudential'one: 'In their envelopment of Damascus the Australians
miglrt be forced, despite orders, to enter the town. If anyorre resisted
them it would spoil the future. One night was given us to make the
Damascenes receive the British army as their allies'.z5 The reference
to orders not to enter the town is left vague and unexplained, and the
readergathers the impression that Damascus was placed out of bounds
to the Australian soldiers because they might meet with disagreeable
incidents from which Allenby designed the Northern Arab Army to
shield them. In view of the exertions of the Australians to restore
order in Damascus which the Sharifians could not preserve, Lawrence's
account seems an offensive travesty of the facts. What is established
is that, once Damascus was captured, it was to be given over to the
Sharifians to control and govern; for one night, says Lawrence; for
twenty-four hours, says his companion Colonel Stirling.2o On the
morning of r October the official and ostensible conqueror of Damascus
was Sharif Nasir, the nominal leader of the Sharifians in the vicinity
of Damascus. He entered the city and made his way to the munici-
pality, where he found a Sharifian flag flying and a committee sitting
which acknowledged the authority of King Husain and claimed to
act on his behalf. It was this committee which had been sitting when
the advance guard of the 3rd Light Horse Brigade arrived in Damascus,
and had surrendered the city to them. This committee seems to have
been formed by the Ottoman authorities on 3o September before
their withdrawal from the city, to preserve law and order. It was
composed of notables representing different quarters and presided
over by Amir Sa'id al-Jaza'iri, who had an Algerian following in the
city. The Ottoman commander issued arms to the committee and
Amir Sa'id armed his Algerians and put them under the command of
his brother, Amir Abd al-Qadir. At the same time, so one Damascene
writer states, the Ottomans seem to have appointed Shukri al-Ayyubi,
a high-ranking officer in the Ottoman army, military governor of
Damascus.2T Whether this was so or not is, in fact, unclear. What does
seem to be the case is that Lawrence dismissed the Jaza'iris and
appointed or confirmed Ayyubi as military governor. This was an
injudicious move. Then and subsequently Ayyubi proved to be quite
incompetent. A later estimate by a British Intelligence omcer sums
up the character of Lawrence's nominee: 'He is not intelligent, said
to be fanatical and is . . . a little queer mentally. He is pleasant
mannered but useless.'28
Some light on Lawrence's activities at this juncture is thrown by an

43
 THE CHATHAM HOUSE VERSION
autobiographical sketch which Chauvel wrote some time after the
War. Early in the morning of r October, Chauvel writes, General
Barrow informed him that Lawrence had ridden into Damascus with
a small Arab following on the heels of the advanced guard of the
r4th Cavalry Brigade. Chauvel considered Lawrence as his 'liaison
officer'- presumably with the Sharifians - and was looking to him to
assist in the civil administration of Damascus' On hearing Barrow's
report, he decided to go into Damascus accompanied by his Chief-of-
Staff. He found Lawrence in the saray of Damascus accompanied by
a 'magnificently attired individual' whom Lawrence introduced as
Shukri Paska, the military governor of Damascus. Chauvel declares
that as Ayyrrbi looked obviously like an Arab, he demanded to see
the Turkish wali; Lawrence told him that the wqli had fled and that
Ayyubi had been appointed military governor by a meeting of
residents. At this juncture Chauvel knew nothing of the Jaza'iris
and their committee which had in fact surrendered Damascus earlier
that morning to the Australians, and he conflrmed Ayyubi in his
post. It was only after returning to Corps headquarters, so Chauvel
states, that he received the 'disquieting' information that Ayyttbi
only represented the supporters of the Sharif, 'a comparatively small
section', that the Damascenes were alarmed at the prospect of
Sharifian domination, that the 'Arabs' were pouring into Damascus,
and were 'looting freely'. But as he had already informed Allenby of
his appointment of Ayyubi, Chauvel decided to let it stand.te
As might be expected, in consequence of these manoeuvres, rela-
tions between Ayyubi and the laza'iris were not good. Acting under
the authority which Lawrence had talked Chauvel into conferring on
him, Ayyubi took a step which had serious consequences: he had the
prisons opened and the prisoners, some four thousand of them,
among whom, declared an eye witness, were 'murderers, robbers,
opium addicts and forgers', set free. These prisoners started looting
and killing, particutarly Ottoman soldiers who were either wounded
or sick or fugitive and thus contributed to the troubles which com-
pelled Bourchier to intervene on the afternoon of r October.8o If
AyS,ubi had rrot been put in authority, or if he had taken steps to
control the Sharifian camp-followers who were moving on Damascus,
and had not opened the prisons, aPPearances might have been saved,
a Sharifian government ceremoniously proclaimed and quietly
established. But the advent of the Sharifians found Damascus in
turmoil, easily quelled, to be sure, by a trained and numerous force
44
 THE CAPTURE Or DAMASCUS, r OCTOBER rgrS
such as the Australians, but quite beyond the Sharifians to deal with.
On this disorder Seaen Pillars is silent; one word merely:'The day
was drawing in, the world was in the streets: riotous'.8r What this
actually meant we have the war diary of Bourchier's force to tell us;
also the memoirs of Sir Alec Kirkbride, who was with Lawrence on
that and the following day. 'His tastes', writes Kirkbride of Lawrence,
were anything but bloodthirsty, and he appeared to be genuinely shocked
by the free use which I made of my revolver during the evening after we
entered Damascus, when he would insist on rescuing TurHsh stragglers
from being murdered by the local populace, and, during the next morn-
ing, when a small Arab army detachment was called upon to quell some
nasty street fighting and looting in the bazaars. Before going to tidy up
the Turkish military hospital that evening he asked me to go out with
him and help in stopping the killing of Turks in the streets. I expressed
my willingness to go, but suggested that we should take an armed party
along. He said, 'Oh no; you and I can manage, f am sure!'
We must have looked an ill-assorted couple, he short and in Arab
robes with no arrns but an ornamental dagger, and myself long and lanky
in khaki, wearing a large service revolver. When we found anyone
butchering Turks he went up and asked them in a gentle voice to stop,
while I stood by and brandished my firearm. Occasionally, someone
turned nasty and I shot them at once before the trouble could spread . . .
We returned to Arab headquarters leading some twenty Turkish
prisoners whom we had rescued and who refused to let us go until we had
found a guard to whom they could be handed over.rr
Lawrence is more forthcoming about the events of z October. But
he attributes them to the machinations of the Jaza'iri brothers, who
incited their armed Algerian followers, and to the greed of the
mercenary Dnrzes, who, denied payment, joined forces with the
Algerians. The Druzes, however, did not create the disorders, thev
only aggravated them. And, in any case, they were in the city as
part of the Sharifian force, in order to prove to the world that Faisal
was the conqueror of Damascus. As for Lawrence's enmity towards
the Jaza'iris, its reasons are not clear.tt When they took over from
the Ottomans the Jaza'iris had proclaimed that they were merely the
agents of King Husain, and when Sharif Nasir came into the city he
seems to have accepted their claim at face value and, as Faisal's
representative, to have confirmed them in their authority.sr Had
everything gone well their committee, recognised by Sharif Nasir,
would have been presented by Allenby to the world as a Sharifian
administration already constituted and functioning well before the
45
 THE CHATHAM HOUSE VERSION
capture of the city. That this was his intention is made clear by a
telegram which he sent to the War Office on z9 September in which he
said that 'As far as the "A" area, and notably the city of Damascus
is concerned, I shall recognise the local Arab administration which I
anticipate finding already in existence, and shall appoint French
liaison ofrcers as may be necessary''86 A letter from Faisal to Amir
Sa'id al-Jaza'iri - which the recipient, however, did not receive at the
time - confirms Allenby's plan. Faisal instructs Sa'id that if the
Ottomans evacuated Damascus peaceably, he, together with the
municipality, was to take over the city in the name of the 'Arab
government'; but if they did not give up without a fight, Faisal
hoped that Sa'id would hoist the 'Arab flag' before anyone entered
the city, would proclaim a provisional government in the name of His
Maiesty the 'King of the Arabs', and receive the Allied armies 'with
the Arab flags in your hands'.38 It is in the light of such plans that we
must look at Allenby's instruction, issued at Kuneitra on the same day,
that Damascus was to be left under the existing civil administration.
A statement made later by Amir Sa'id also indicates what Allenby
wanted to happen. Writing in 1934, he declared that towards the end
of the war he had asked Faisal what pledges and conditions relating to
Syria had been negotiated with the British and that Faisal had replied :
There are no pledges or conditions, O my brother, but u'hat has been
agreed upon is that we will attack Syria and Palestine; and any of the
three forces, British, French or Arab, which first occupies a town will
exercise control over it until the Allies consider its fate. Therefore if you
want to ensure your country's independence, do not wait; but when you
hear of the armies approaching, declare independence even though this
might entail a sacrifice. Because the Arab army might be delayed and
another advance in its Place.8?
The Jaza'iris' pro-Sharifian sentiments may have been merely oPPor-
tunistic, but the fact remains that, as The Arab Bwll,etin stated, Amir
Abd al-Qadir had offered allegiance to the Sharifian cause in r9r7,88
that King Husain had entrusted him with a Sharifian standard which
was now floating over the government offices, and that Sa'id had been
on good terms with Faisal who had used him in rgrT to conduct
negotiations with the Ottomans.se Lawrence, however, took exception
to them and dismissed them from their functions immediately follow-
ing his entry into Damascus. Whatever his reasons for this step, by
antagonising both the Jaza'iis, with their armed following, and the
Druzes, and by appointing Ayyubi instead of alleviating, he increased

46
 THE CAPTURE OF DAMASCUS, r ocToBER rglg
disorder in a city already given over to large numbers of crinrinals on
the rampage. By his action Lawrence frustrated Allenby,s design
and made it difficult to claim that Damascus on its capture was under
the undisputed and effective control of a 'local Arab administration'.
seuen Pill,ars gives the impression that the disorders of z october
were easily quelled by Sharifian regulars. This was not so, as clearly
appears from the Australian sources, from the reports of the U.S.
special agent William Yale, the testimony of the journalist W. T.
Massey and other evidence cited in England. and. tke lllitldle Easl.ro
In fact, chauvel decided to march his troops into Damascus in order
to intimidate the rioters, but useful though this measure was it could
not affect conditions in the maze of narrow streets which branched
ofi the main thoroughfares. There, as Kirkbride points out, a fairly
strong force was necessary in order to come to g,ips with the rioters,
but the police force had ceased to function 'and there was political
objection to calling in the British forces, who were camped on the
outskirts of the town, and so admitting that the new Arab ad_
ministration was incapable of controlling its own people'. So the small
number of Sharifian troops were employed .to shoot up any street in
which there was fighting in progress and then, when people ran for
safety, to double up and fire a few parting shots to keep the other side
moving. This,' Kirkbride pointed out, 'meant the killing and wound-
ing of a number of persons which would have been avoided had the
forces of law and order been more numerous'.4l
Thus, messily and inelegantly, the Sharifians were enabled. to gain
control of Damascus. Ultimately to no purpose, for two years after
these events they were dislodged by the French. Some twenty-three
year later, British troops once again captured Damascus, and once
again were deliberately prevented from entering the city. In rgrg,
the device was used to forestall French claims to a privileged
position in Syria; in r94r, ironically enough, this was done to
the Free French formally to claim its capture, and thus in effect "n"tl"
to
assert the French privileged position in Syria.a2 It was of course Anglo-
French rivalry in the Levant which explains these extraord.inary
incidents of r9r8. Now, only a few decades later, we find this rivalry tL
belong to a vanished world, of which nothing remains. Nothingtut
whatever satisfaction the historian feels when, out of the confusion and
the inexactitude, the distortions, the garbled reports and the surviving
fragments, he makes for himself a coherent intelligible picture.*
I See postscript, page 5r below.

47
Appendix

Prdcis oJ the Australian War Diaries

Shortly after midnight z7-8 September r9t8, orders were received for
the Australian Mounted Division to move at six o'clock in the morning
with the object of relieving Damascus on the zgth. An engagement was
fought with the enemy at Jisr Banat Yakub, the enemy was routed and
I{uneitra occupied on z8 September. On the evening of z8 September
orders were received from the Desert Mounted corps that the move from
KuneitratoDamascuswouldbepostponeduntiltheeveningofzg
September. At z o',clock in the afternoon on September r9 orders were
issued at Kuneitra for the march on and the capture of Damascus' Care
was to be taken to avoid entering the city if possible; unless forced to do
so for tactical reasons, no troops were to enter Damascus; pickets were
to be posted on all roads into Damascus to ensure performance of this
order; Damascus was to be left under the existing civil administration
and no national flags were to be flown. Further, the Beirut railway was
to be barricaded and telegraph lines were not to be cut'
At 3 o,clock the 3rd Australian Light Horse Brigade moved off from
Kuneilra, the rest of the division following it at 5 o'clock. The 9th Light
HorseRegimentand6thMachineGunswereadvancedguards.The
advanced guards encountered the enemy at 8 o',clock in the evening, who
proved too strong for them. The roth Light Horse Regiment was sent in
reinforcement, and an attack mounted against the enemy's right flank
at Nahr Mughaniye. The operation proved very difficult owing to the
rocky country making it almost impossible for mounted men to move
across country in the dark; further, the enemy's right flank was protected
by an impassable boggy creek. The brigade was ordered by divisional
headquarters to push on as quickly as possible. It forced its way through
the enemy's posilion astride the road, but was fired on by machine guns
from a hill about twelve hundred yards to the east. As it could not pass
on and leave the remainder of the corps exposed to this fire, the operation
hadtobeextendedtotheeast.The8thLightHorseRegiment(lessone
squadron)wassentinreinforcementatzo,clockonthemorningol
position was captured' and
3o September, and by 3 o'clock the enemy's
he retreated into Damascus. The 4th Light Horse Brigade now constituted
the divisional advanced guard
In the morning of 3o September orders were received for the 5th
Australian Light Horse Brigade to endeavour to close all exits from
48
 APPENDIX
Damascus to the north-west and the north-east, by moving via Katana
north-easterly along the foothills of KalabatElMezze. The 3rd Australian
Light Horse Brigade was closely to support the 5th Brigade. Bourchier,s
force formed at Kuneitra on z9 September and composedof two regiments
(the 4th and the rzth) from the 4th Light Horse Brigade was to move
directly on the town via Daraya.
Bourchier's force encountered the enemy - estimated at about z,3oo
with numerous machine guns - that morning holding Kaukab and the
ridge to the east of it. c.olonel Bourchier tried to work round the enemy's
right flank, but decided that unnecessary casualties would be entailed
without heavy artillery support. An attack was mounted after a bombard-
ment which was seen to affect the morale of the enemy; the rzth Light
Horse Regiment worked round the Turkish left flank and the
4th
Regiment attacked the front. The enemy was defeated about midday;
prisoners were taken and the Turkish cavalry escaped into Damascus.
The 5th Australian Light Horse Brigade moved forward but was harted
atElMezze about midday by enemy guns and machine guns. At r o,clock
in the afternoon the rgth Royal Horse Artillery Brigade arrived and
succeeded in silencing the enemy. His position was difficult to force;
hills and woods made the ground too narrow for a mounted attack in the
face of so many machine guns. In the afternoon, the French regiment
arrived to help and the enemy was finally defeated by 6 o,clock; four
thousand prisoners, caught between the French regiment and the r4th
Light Horse Regiment, were captured.
At 3.3o in the afternoon the 3rd Australian Light Horse Brigade was
ordered to move north-east as rapidly as possible and cut the Homs road
as it was not the policy to enter Damascus if it could be avoided. The
brigade reached the village of Dumar and reconnaissance soon showed
that the nature of the terrain was such that an advance across country
over Jabal Kasiun was impossible. The only alternative was the main
road from Dumar through El Rabwa and the northern end of Damascus
itself. Divisional orders were received for the brigade to bivouac for the
night, and to march at five o,clock on the following morning for the
Homs road and capture the enemy escaping via the north_east from
Damascus.
By 5 o'clock on the morning of r October the 3rd Australian Light
Horse Brigade w:ls on the move. The column descended to the main road
at Dumar and moved towards Damascus. It passed on without opposition
through the northern end of the city. The enemy in the city showed no
sign of opposition. All lines of retreat were closed to them, and the
brigade passed them by in order to get on to the Homs road. At this spot
the 4th Light Horse Brigade later collected twelve thousand prisoners.
rn the afternoon of r october, the divisional headquarters and the
divisional troops were established in Salahiye, the 3rd Australian Light

49
 THE CHATHAM HOUSE VERSION
Horse Brigade was on the Aleppo road, the 5th Brigade was on the
Beirut road, and Bourchier's force was partly in the city maintaining
order and the remainder guarding prisoners. colonel Bourchier was
forced, in the interests of discipline, and on account of the extraordinary
noise and apparent unrest in Damascus, to place guards on many of the
public institutions, consulates, hospitals, etc. Arabs were looting and
murdering Turkish wounded and stragglers. But as the complete control
of the torvn was in the hands of the sharifian forces, colonel Bourchier
was ordered, in the early evening, to get in touch with them and arranse
for them to take over the duties oI guarding the various public institutions'
The Desert Mounted corps were informed that colonel Bourchier had
consulted with the Sharifian authorities, and that as Sharifian troops
u,ere fully engaged clearing up the town, they could not relieve his troops
on guard at public buildings. At rz noon took place the official entry into
Damascus by the G.O.C. accompanied by the G'S'O'I', staff and a de-
tachment from the Australian Mounted Division. very shortly after-
wards colonel Bourchier was ordered to keep his force at Hamidiah
Barracks with one squadron ready to be placed at the disposal of colonel
Lawrence to assist the Sharifi,an authorities to rnaintain order in the town,
as considerable trouble had been experienced during the morning on
account of irregular bodies of Druzes looting'
In the early afternoon the 5th Australian Light Horse Brigade at
Dumar reported the arrival of some two hundred native soldiers who
claimed to belong to the sharifian forces, who began breaking into
houses, shooting cattle and horses and looting ProPerty. The Desert
Mounted corps were asked for information to assist in discriminating
between sharifian and other Arab troops, since it was impossible to tell
regular from irregular Arabs. The corps answered that all Sharifian
troops were ig Damascus and its immediate vicinity; other soldiers were
Bedouin or Druze irregulars who, in the event of breaking the peace, or
looting, were to be treated as hostile.
on I octouer Bourchier,s force was disposed picketing the town and
guarding prisoners. on the following day orders were issued placing
D"."."r. out of bounds to the troops. The Fourth cavalry Division
were ordered by the Desert Mounted corps to post a squadron in the
Christian quarter of the totvn. On 6 October orders were received from the
Desert Mounted corps to relieve one squadron Stafiord Yeomanry on
guard on christian and Jervish quarters of Damascus. on 8 october
colonel Bourchier was ordered to reconnoitre and report on the best
route for ambulances between the victoria Hotel and the British and
French hospitals, because the existing route passed through the
bazaar
quarter which was to be avoided if possible. On 3o October, a message

wasreceivedfromtheDesertMountedCorpsthattherothLightHorse
Regrment had been ordered to rejoin the division. It left
Damascus on

5o
 APPENDIX
3r October. (Narrative based on the War Diary of the Geueral Staff of
the Australiar"r Mounted Division, Australian Imperial Force in Egypt,
on thc War Diary of Bourchier's Force, and on the War Diary of the
H,Q., 3rd Australian Light Horse Brigade.)

Postscript. An examination of war office papers at the public Record

Office which I was able to make only after this book went to press makes
it possible, in spite of the fragmentary nature of these papers, and of
the fact that sorne of them are closed for roo years, to settle definitely
some crucial questions concerning the capture of Damascus. Two tele-
grams from the war office to Allenby both sent on r October rgrg
-
the culmination of exchanges which began on z5 July previous - make
it clear that it was the desire of the British Government that ,the
authority of the friendly and allied Arabs should be formally recognised
in any part of the areas "A" and "B" [as defined in the Sykes-picot
Agreementl rvhere it may be found established, or can be established,
as a result of the military operations now in progress, (W.O.33/96o,
rto. tor77), and that Allenby was 'authorized by His Majesty,s Govern-
ment to hoist Arab flag in Damascus when you arrive therc' (Ibid., to.
ror78). The exact manner of carrying out these instructions was presum-
ably left to Allenby. How he proceeded may be seen from an order sent
to Lawrence on z5 September in which he was desired to inform Faisal
that 'there is no objection to Your Highness entering Damascus as soon
as you can do so with safety'. (Appendix NI to War Diary of General
Staff (Operations), G.H.Q., Egyptian Expeditionary Force, W.O.95l
437r.) This, of course, contrasts with the order to the other troops
not to enter Damascus, the political purpose of which this document
amply indicates. Allenby's purpose in forbidding Damascus to non-
sharifiantroops becomes even clearer from an exchange between the Fourth
Cavalry Brigade and the Desert Mounted Corps in the afternoon of r
October. The Brigade, who obviously knew of no exception to the order
forbidding troops to enter Damascus, asked: 'Are Hejaz regulars to be
allowed to enterg' The reply was: 'Hejaz regulars are to be allowed to
enter Damascus.' (Appendices 7 and r r to War Diary of the General Staff,
Desert Mounted Corps, W.O.g5144n.) A few hours earlier, at rt.z5
a.m., the Australian Mounted Division had already informed the Desert
IVlounted Corps that 'Arabs are apparently looting and setting fire to
parts [of] Damascus'. (Appendix z, ibid.) Thus the chief responsibility
for what took place at Damascus on r and z October falls on Allenby,
who chose to carry out his instructions in this particular manner, and
on Lawrence who misled Chauvel into ratifying his choice of Ayyubi as
governor,

5r
+

Sir Herbert Samuel and

the Government of Palestine

When, in April rgzo, Lloyd George asked Herbert Samuel to under-

take the government of Palestine the mandate for which had just been
assigned to Great Britain, he was quite deliberately ofiering the
appointment to someone who sympathised with Zionism and would
try to make a success of the Zionist programme. Samuel's interest in
and involvement lvith Zionism dated at least from the outbreak of the
war in r9r4. When in November of that year the Ottoman empire
joined the Central Powers, he was quick to suggest to Grey, the foreign
secretary, the possibility of establishing a Jewish state in Palestine;
the following January, he sent Asquith a memorandum on this
subject, its romantic rhetoric startling and somewhat amusing the
prime minister. 'The Jewish brain', declared the chairman of the local
government board,
is a physiological product not to be despised. For fifteen centuries the
race produced in Palestine a constant succession of great men - statesmen
and prophets, judges and soldiers. If a body be again given in which its
soul can lodge, it may enrich the world. Till full scope is granted, as
Macaulay said in the House of Commons 'let us not Presume to say that
there is no genius among the countrymen of Isaiah, no heroism among
the descendants of the Maccabees'.r

The following March a revised version oI this memorandum was

circulated to the cabinet, of which Samuel was a member. In it, he
argued that British imperial interests required a British protectorate
over Palestine, and that this might provide an opportunity for Jews
to immigrate, found colonies and develop the country so that in due
course a majority would become settled in and rooted to the land.

Let a Jewish centre be established in Palestine [he urged], Iet it

achieve, as it may well achieve, some measure of spiritual and intellectual

52
 SAMUEL AND THE GOVERNMENT OF PALESTINE
greatness, and insensibly the character of the individual Jew, wherever
he might be, would be raised, The sordid associations which have attached
to the Jewish name would be, to some degree at least, sloughed ofi, and the
value of the Jews as an element in the civilisation of the European peoples
would be enhanced.r

These, clearly, are the words of a convinced Zionist, who accepts and
takes for granted the Zionist analysis of the Jewish predicament and
how to surmount it. And for the rest of the war, indeed until his
appointment as high commissioner at the end of April r9zo, rvhether
in or out of office, though he was not a member of the Zionist
Organisation, he remained helpful and syrnpathetic to the movement.
In r9r8 and r9r9, in particular, as he says in his Mernoirs, he was
'co-operating closely'with the Zionist leaders,s and even ready, at
times, to use his influence and connections to further their cause.
Thus we find him, for instance, writing to Balfour in March r9r9 to
express his disquiet at the news of an inter-Allied commission being
sent to investigate conditions in the near east. This news, he writes,
'has caused much anxiety to those who are interested in Palestine'
and who were afraid that delay and indecision would be harmful to
the Zionist cause.4
He became the chairman of the Advisory Committee on the
Economic Development of Palestine, and as such was consulted by
the government on ways of furthering the Zionist programme. In
February and March r92o he was in Palestine on behalf of the Foreign
Office, to investigate the 'financial and administrative conditions
there, and to advise concerning the line of policy to be followed in
future in these respects, should the mandate fall to Great Britain'.
If it be asked how Samuel reconciled his Zionist s1'rnpathies with an
active career in British politics, the answer is that he saw here no
contradiction which needed to be reconciled or resolved. In his final
report as high commissioner in Palestine there is a paragraph which
deals with this subject and which seems an echo of those war-time
controversies in which the notables of Anglo-Jewry adopted sharply
divergent attitudes. In this passage Samuel refers to the fear of many
Jews that the Balfour Declaration would undermine their position
as established and fully-fledged citizens. This fear, he declared, led
these Jews to regard Zionism and the Balfour Declaration 'with
embarrassment, and sometimes with hostility'. Others, however,
equally patriotic - and it is among these others that he undoubtedly
counted himself - had a contrary view:

53
 THE CHATHAM HOUSE VERSION
They refused to engage in frne-drawn discussions as to the meaning of
'national'and'people'. They were deeply interested in the return of a
body oI their co-religionists to Palestine; they wished to see the move-
ment succeed, and were ready to help in promoting it; and at the same
time [he went on] they saw no reason why they should not remain, in
as loyal citizens of the states to which they belonged
spirit and in action,
as Palestine had not entered the field of political discussion and as if
if
the Balfour Declaration had never been made.!

It
was, then, as an avowed and indeed ardent sympathiser with
Zionism that Samuel was chosen by Lloyd George to inaugurate the
administration of Palestine under British mandate. Samuel's record
as high commissioner may be held to have amply justified Lloyd
George's choice. When Samuel left Palestine in r9z5 the country was
at peace and had been so for four years, Palestine was endowed with
a modern and generally efficient administration, and the land was
beginning to know some prosperity. Justifiable as it Proved to be,
Lloyd George's choice was also natural. From the start the prime
minister had sympathised with Zionism. His motives were no doubt
mixed, some of them even devious, but it is certain that he believed
the enterprise of a Jewish National Home in Palestine both feasible
and beneficent - beneficent alike to the British empire and to the
Jews. Furthermore, it was as a patron of Zionism, as the author of the
Balfour Declaration, that the British government publicly justified
its case to be the mandatory of the League of Nations in Palestine,
and who better than a sympathiser with Zionism to carry out a pro-
Zionist policy and thus show the British government to be in earnest
over its professions?
On hearing Lloyd George's ofier, Samuel's first impulse was, as he
tells us in his Meruoirs ,6 to ask the prime minister whether 'such an
appointment was open to the danger that measures, which the non-
Jewish population would accept from a British Christian governor,
might be objected to if adopted by a Jew'. He therefore did not
accept the offer on the spot. It was only after giving the matter
further thought, and consulting Weizmann and Sokolow, that he
wrote to Lloyd George accepting the post. The objections which he
himself had raised, he now came to think, could be overcome. In the
long run, he came to believe, the attitude of the non-Jewish popula-
tion depended upon the reasonableness of his measures and upon the
manner in which they were presented. Very soon after taking up his
post another consideration began to have weight with him, to become

54
 SAMUEL AND THE GOVERNMENT OF PALESTINE
with the years gradually uppermost in his mind. In lis lulemoirsl
he puts it as follows: 'I had been appointed with full knowledge on
the part of His Majesty's Government oI my Zionist sympathies, and
no doubt largely because of them. But,' he adds, 'I was there to
administer the country, not for the benefit of one section of the
population only, but for all; not commissioned by the Zionists but in
the name of the King.' Samuel, as anyone who looks at his record
must agree, was essentially a fair-minded and a punctiliously honour-
able man. It is therefore not surprising that the duties of his public
office should have, very quickly, begun to weigh more with him than
the advancement of a scheme which, however near it was to his
heart, was yet the private dream and ambition of one section only of
the population for which he was responsible.
In a debate in the House of Lords in May 1939 he declared that
imrnediately after the war he, like other figures such as Neville
Chamberlain, Winston Churchill and General Smuts,.had contem-
plated that some day or other a Jewish state might be established,
but that fuller experience convinced everyone that a Jewish state
covering the whole of Palestine was not possible.s How quickly he
himself became so convinced may be seen from a gloss on the Balfour
Declaration which he wrote after the Jaffa riots of May r9zr, in
consultation with the Colonial Office, and which he made prrblic in a
speech delivered at Jerusalem on 3 June. \Vhat the Balfour Declara-
tion meant, said Samuel, was 'that the Jews, a people who are
scattered throughout the world, but whose hearts are always turned
to Palestine, should be enabled to found here their home; and that
some among them, within the limits which are fixed by the numbers
and interests of the present population, should come to Palestine in
order to help by their resources and efforts to develop the country to
the advantage of all its inhabitants'.e It is, again, instructive to note
what he had to say about Zionist aims and ambitions in the Report
published in August rgzt , in which he reviewed his first year as high
commissioner. In it, he referred to those Zionists 'who sometimes
forget or ignore the present inhabitants of Palestine', who, intent as
they are on realising the Zionist dream, suddenly'learn with surprise
and often with incredulity, that there are half-a-million people in
Palestine, many of whom hold, and hold strongly, very difierent views'.
Some of these Zionists, he went on, would 'ride rough-shod' over this
opposition and condemn anything else as a weak surrender to violence.
He himself did not share such views: 'The policy of His Majesty's
55
 THE CHATHAM HOUSE VERSION
Government', he declared, 'contemplates the satisfaction of the
legitimate aspirations of the Jewish race throughout the world in
relation to Palestine, combined with a full protection of the existing
population. For my own part,' he went on, 'I am convinced that the
means can be found to effect this combination. The Zionism that is
practicable is the Zionism that fulfils this essential condition'.lo How
far removed from mere Zionist advocacy his attitude became may be
instanced by an exchange in which he was involved during the House
of Lords debate on the Peel Report. Lord Strabolgi had remarked in
passing how 'the case for the Jewish people throughout the world'
had been put with force and clarity by Lord Reading, Lord Melchett
and Lord Samuel. Samuel at once interjected: 'I hope the noble Lord
will allow me to disclaim having stated the Jewish case'.u
The Zionism, then, which fulfiIled the essential condition laid dowu
in Ns Report of rgzt, was the only Zionism which it was both safe,
politic and just to encourage and support. For though his duty
embraced much more than the mere sPonsorship of Zionism, yet after
all, it was part of his duty - as well as his inclination - to promote
Zionism.
The duty, thus, to govern Palestine in the interest of all its in-
habitants as well as solicitude for Zionism - for that practicable
Zionism which to him was now the only acceptable one - required
that the existing inhabitants of Palestine should be conciliated and
reassured. Other, more immediate and pressing reasons reinforced
this attitude. When Lloyd George offered him Palestine Samuel, as
we have seen, considered whether his being a Jew ought not to pre-
clude him from accepting. Others also thought similarly. When
Allenby, the supreme head of the military administration which had
governed Palestine since the end of r9r7, heard that Samuel was to
become the first civil governor of the country, he hastened to tele-
graph to Curzon, the foreign secretary: 'I think the appointment of a
Jew as first governor will be higtly dangerous'. The Muslims, he went
on, were in a state of great excitement, having heard that the Balfour
Declaration was to be included in the peace treaty. 'The only restrain-
ing factor being assurance which has been given by chief administrator
that government of country would be a British government. They will
regard appointment of a Jew as first governor, even if he is a British
Jew, as handing country over at once to a permanent Zionist ad-
ministration'. Allenby went on to prophesy doom and destruction on
Samuel's arrival in Palestine with 'outrages against Jews, murders,

56
 SAMUEL AND THE GOVERNMENT OF PALESTINE
raids on Jewish villages, and raids into our territory from east if no
wider movement'. The Christians, whether Protestant, Catholic, or
Greek Orthodox, would also 'deeply resent transfer of government to
Jewish authority', and being quite influential, by throwing their
weight against the administration would make 'government of any
kind very difficult'.lr These highly alarmist prognostications, charac-
teristic as they are of Allenby's defective political judgment, surely
also reflect the advice and information which the commander-in-
chief was receiving from his subordinates in Palestine. Zionists have
always vehemently complained of the lack of sympathy shown to
their cause by the military administration in Palestine from the fall
of Jerusalem until Samuel's appointment, and it must be said that the
evidence of the official records in the archives does bear out their
complaints. This lack of sympathy, and sometimes downright hostility
of course could not remain concealed from the Palestinians. The chief
administrators who succeeded one another, Generals Money, Watson
and Bols, refused - no doubt for reasons which to them seemed con-
vincing - to publish officially the Balfour Declaration in Palestine.
Some two years after the publication of the Balfour Declaration in
London, for instance, we find the Chief Political Officer writing from
Cairo to the Chief Administrator in Jerusalem that the Declaration
'is to be treated as extremely confidential, and is on no account for
any kind of publication'.rs This, of course, did not mean that the
Palestinians were unaware of Zionist ambitions or of the support
which the occupying Power was likely to give them. In the circum-
stances, therefore, the refusal to publish the Balfour Declaration was,
as the Court of Enquiry into the Easter riots of tgzo at Jerusalem
concluded, a mistake. The people, as the court argued, were never
squarely faced with a chose jugie, a thing which in the east, they
observed, often works miracles in persuading people to accept the
inevitable.u The dangers of this equivocal situation were no doubt
increased by Sharifian propaganda in favour of proclaiming Faisal
king of Palestine - a project which Bols, the chief administrator,
lVaters-Taylor, his chief of staff, and Allenby himself, actually took
up and pressed strongly on the government.l6 Their attitude cannot
have remained unknown to the Sharifians or their sympathisers in
Palestine. All these, then, were reasons why the Palestinians should
feel encouraged to hope that their natural and long-standing opposi-
tion to Zionism could perhaps deflect the British government from a
policy the very vagueness of which magrrified, for them, its dangers
57
 THE CHATHAM HOUSE VERSION
and terrors. The Easter riots which broke out in Jerusalem less than
three months before Samuel took up his post showed what fear and
hatred Zionism inspired and what methods could be used to persuade
the British government to cease promoting it.
This situation, which was not of his making, provided an urgent and
compelling reason for Samuel to embark on a policy of conciliation
which would show the Palestinians that while Zionism was being
encouraged, they had nothing to fear for their rights and their
position.
How then were the Palestinians to be conciliated? To ask the
question is immediately to realise how diffcult - indeed perhaps
impossible - such a policy would be. For who were the Palestinians,
and how did one set about conciliating them? The Palestinians were
in their overwhelming majority Muslims. Conciliating the Palestinians
meant, to all intents and purposes, conciliating the Muslim Pales-
tinians. These Muslims had hitherto formed part of the dominant
religion in the Ottoman empire. For long centuries they had been
accustomed to look upon the state as being peculiarly their own; and
while there were among them, naturally, notables and powerful
families, the Muslims of Palestine neither had a political organisation
exclusively their own nor were they accustomed to negotiate with the
government through representatives duly elected and formally
appointed. The British military administration must have found it
inconvenient in many ways to deal with this, so to speak, acephalous
society and hit on the idea of considering the mufti of Jerusalem as
the head of the Muslim community in Palestine and of giving him the
title of Grand Mufti. This was in many ways a curious proceeding.
In Islam a mufti, originally, was a man learned in the law, the
analogue of the prud,ezs of Roman law. He was, to start with, in no
sense a public official; his standing rather depended on his learning
and integrity and it was these qualities which gave weight to his
opinions or fatwas.In some Muslim states the mufti did become in
due course a public official appointed by the ruler to deliver legal
opinions. In the Ottoman empire, notably, the right to issue fatwas
came, from the fifteenth century (of the Christian era) onwards, to be
vested in Shaikh-al-Islam in Istanbul who was appointed by the
sultan. Muftis were also to be found in the Ottoman provinces. In
contrast to the qadi, or religious judge, who was a transient and a
stranger to the district to which he was appointed, the provincial
mufti came from a local family. He was usually an elderly Person
58
 SAMUEL AND THE GOVERNMENT OF PALESTINE
locally respected who sanctioned the judgments not so
of. the qadi
much by his legal learning - which may have been minimal - as by his
unimpeachable character. A provincial mufti was thus clearly a
notable in the Muslim society of his province; but far from repre-
senting his community, he was by no means the most important
notable. So much is this the case that it would entail considerable
labour to ascertain the names of the muftis of Damascus or Jerusalem
or Baghdad or a comparable provincial Ottoman city in the last
hundred years. Indeed the only mufti of some renown in recent times
who comes to mind is Muhammad Abduh, the mufti of Egypt from
1899 to r9o5; and his reputation owed nothing to his office, being the
outcome of previous political and literary activities quite removed
from religion and jurisprudence. Had the question ever arisen, it
would surely never have occurred to anybody to consider Abduh as
the head of the Muslim community in Egypt. The circumstances in
which Abduh assumed office are also useful in showing how cavalierly
Muslim rulers could treat muftis and other religious dignitaries; for
Abduh's appointment followed his predecessor's abrupt and instant
dismissal by the khedive for having presumed to oppose on religious
grounds some legislation sponsored by the Egyptian government.ro
The decision therefore of the military administration to treat the
mufti of Jerusalem as head of the Muslim community in Palestine
and to give him the title of Grand Mufti - a title hitherto unknown
in Islamu - was a new departure from which were to issue the most
momentous consequences. It is most probable that it was Storrs, the
governor of Jerusalem, with his weakness for sonorous ecclesiastical
titles, who invented the title; and that it was an English adaptation
of the French title, Grand. Rabbiz (though the English 'grand'implies
much more than the French 'grand.'), a translation of the Ottoman
title Hahham-bashi which was well-known and familiar all over the
middle east. By tgzo, the title Grand Mufti was firmly established in
the usage of the military administration. It has to be said, however,
in the first place that in so magnifying the position of the mufti, the
military administration may have been influenced by the fact that
the incumbent mufti at the occupation of Jerusalem was Kamil al-
Husaini, member of a large, influential - indeed powerful - family,
and in the second place that this aggrandisement of the mu{ti re-
mained something informal, at best semi-ofrcial, and was never given
the sanction of law.
The mufti Kamil al-Husaini died on zr March rgzr, some nine
59
 THE CHATHAM HOUSE VERSION
months after Samuel had become high commissioner, and the events
connected with the choice of his successor may throw some light on
Samuel's policy of conciliation, which was perhaps the most important
and difficult issue facing him in the government of Palestine. Shortly
after the Young Turk Revolution of r9o8 the Ottoman government
had promulgated a law regulating the election of provincial muftis.l8
According to this law, the mufti of a province such as that of Jerusa-
lem was to be appointed by the government from a list of three
candidates selected by a college of electors comprising: r. Imams,
preachers and teachers of the great mosques; z. The elected Muslim
members of the municipal councils in the province, and 3. The elected
Muslim members of the administrative council of the province.
Ir.r9zt, by reason of the war and its aftermath, no administrative
council existed in the Jerusalem province and the members of the
municipal councils were not elected but had been nominated by the
military administration. The electoral college prescribed by the
Ottoman law could therefore not be convened, but arrangements were
put in hand to call a meeting of imams and other religious Persons
together with the Muslim nominated members of the municipalities
in the Jerusalem province, in the belief obviously that such a meeting
was the nearest approximation to the electoral college required by the
law.
Kamil al-Husaini's death immediately precipitated a struggle for
his succession. Writing to Storrs, the district Sovernor, to notify him
of the mufti's death, the qadi of Jerusalem added: 'His brother Hajj
Amin efendi is his successor'. This was obviously not a statement of
fact but the expression of a wish, and in the days following many
petitions were sent to the district governor from shaikhs of tribes,
notables and private persons urging that Hajj Amin was the people's
choice.lo This was obviously a concerted move organised by the
Husaini interest and desigaed to pressure the high commissioner into
choosing Hajj Amin as mufti out of the list of three candidates to be
elected by the electoral college, where it was clearly hoped that his
name would figure. Hajj Amin was the late mufti's younger brother,
and he was very young indeed for the position to which he aspired'
Born in 1895 or 1896,20 he was therefore in tgzt either twenty-five or
twenty-six years of age. He is said to have attended al-Azhar in
Cairo, but his religious studies cannot have been either long or
arduous, for he is also said to have served as an Ottoman officer
during the war. After the British occupation of Jerusalem we find him
6o
 SAIUUEL AND THE GOVERNMENT OF PALESTINE
employed - in what must have been a subordinate capacity - in the
district governor's office. We then hear of him in r9r8 helping to
recruit Palestinians for the Sharifian army under the direction of
Captain C. D. Brunton. He was then described as 'very pro-English'.
But his attitude changed when he came to learn of British support
forZionism, to which he reacted with'surprise and anter'.2l He became
one of the leaders of the Easter riots in Jerusalem in rgzo, and for his
part in the disturbance a court martial sentenced him to ten years'
rigorous imprisonment. The sentence was pronounced in absentia,
since Hajj Amin had fled from Jerusalem and taken refuge among the
Trans-Jordanian tribes. The high commissioner visited the area in
August rgzo and at a meeting at as-Salt a number of shaikhs re-
quested him publicly to pardon Hajj Amin and Arif el-Arif, another
Jerusalemite also implicated in the Easter riots. As he wrote in a
letter of z6 August to general headquarters, Cairo, 'For political
reasons I considered it desirable to announce at the meeting that
both the offenders might be pardoned'.z2 By the following October
Hajj Amin was back at Jerusalem where we see him included in a
police black list of people to be actively watched, and described as
'agitator'.23
This then was the record of one of the contenders for the post of
mufti of Jerusalem. His main rival was Sha.ikh Hisam al-Din Jarallah,
the inspector of the religious courts, who in fact also began to collect
suffrages for himself as soon as the mufti Kamil had died. He must
have been a force to contend with, for two days after the mufti's
death the deputy director of public security was reporting that 'the
efforts of Sheikh Husam al-Din Jarallah on his own behalf may lead
to faction strife'.2r
On the face of it, Shaikh Hisam al-Din was much more than his
turbulent and colourful rival the kind of person who had traditionally
been chosen as mufti: a man of respectable reputation and with some
knowledge of the law. And yet there are indications that Samuel was
prepared, before the meeting of the electoral college, to use his
prerogative in favour of Hajj Amin. In a note dated rr April, the
day before the meeting of the electoral coUege, he recorded a dis-
cussion with Hajj Amin 'at considerable length' 'on the political
situation and the question of his appointment to the office of Grand
Mufti' - and we notice that Samuel seems to have accepted 'Grand
Mufti' as a proper title for the mufti of Jerusalem. At this interview,
at which Storrs was present, Hajj Amin 'declared his earnest desire
6r
 THE CHATHAM HOUSE VERSION
to cooperate with the government, and his belief in the good intentions
of the British government towards the Arabs. He gave assurance that
the influence of his family and himself would be devoted to main-
taining tranquility in Jerusalem ...'.25 It is quite clear that this
interview was meant to prepare the way for the high commissioner
to select Hajj Amin's name from the list of three candidates among
whom he probably Ielt sure to be included, at the election which was
to be held on the morrow.
Why, we may ask, was Samuel prepared to appoint as mufti a man
of this kind and with such a record? And the answer probably lies in
the situation with which he was conlronted - a situation which was
not of his making. At the Easter riots of rgzo the mayor of Jerusalem
happened to be the head of the Husaini family, Musa Kazim Pasha
al-Husaini. During the riots, Storrs tells us, 'he became first intractable
and then defiant' and the district tovernor decided to dismiss him.
In his place he appointed someone from a rival family, the ex-
Ottoman deputy Raghib al-Nashashibi.2s This happened before
Samuel took up his post, and it may well have been represented to
him -perhaps by Storrs -that it would be impolitic for both the mayor
and the mufti of Jerusalem to be drawn from outside the Husaini
clan, and therefore Hajj Amin - such as he was - should be chosen.
The meeting of the electors took place at the governorate on rz
April; to the surprise of the government, Shaikh Hisam al-Din
Jarallah was given the largest number of votes, whilst Hajj Amin
came at the bottom of the poll - he received only eight votes - and
thus could not be included in the list of three candidates from which
the high commissioner was to choose the mufti.8? The result, as a
report from the deputy director of Public Security (dated 14 April)
informs us, incensed the members of the Husaini family and a meeting
was immediately held at the house of Jamil al-Husaini to organise
protests and deputations.2s A powerful attack on the election and its
results was in fact soon mounted. Numerous petitions and telegrams
were sent to the government; rumours were put about that the
ulamas who voted in the election had received bribes from the govern-
ment, that the Jews, or else Raghib al-Nashashibi, had exerted their
sinister influence against the Husaini candidate. A graphic example
of the lengths to which this campaigrr was taken is provided by a
notice posted on 19 April in the Old City. Entitled'Wake up Moslems,
The Jews are interfering in the election of the mufti', it began:
'Awake and prevent danger before it occurs. The accursed traitors
6z
 SAMUEL AND THE GOVERNMENT OF PALESTINE
whom you all know, have combined rvith the Jews, to have one of their
party appointed mufti . . .'
Such a mufti, the notice went on to say, would assist the Jews by
selling to them waqf property and particularly the waqJ of Abu
Midian which included the Western Wall; he would agree to all
Zionist claims and kill the national spirit in the country; he would
hand over to the Jews the Dome of the Rock and the Aqsa mosque
so that they might pull them down and rebuild the Temple, 'as stated
by Alfred Mond and the president of the Zionist Commission, Dr
Eder.' 'The pride of Islam is dead', concluded the notice, 'but God
wants to punish you for having opposed the Moslem government of
the caliphate which protected the religion. Will you accePt the shame
to have a Jewish Zionist mufti and that your religious affairs should
become a plaything in their hands?'20 Finally the election was attacked
as invalid on the ground that the membership of the electoral college
was not as stipulated in the law. This powerful onslaught soon pro-
duced its efiect on the government. A dispatch of 9 May informed the
Colonial office that 'learned opinion, represented by the law courts,
has not favoured the popular candidate Al Haj Amin al-Husseini' but
that technical flaws in the constitution of the electorate had delayed
the appointment of the mu{ti,so and by the end of the month it was
quite clear that the election was to be disregarded, and Hajj Amin
allowed to become mufti.
This outcome was determined largely, perhaps decisively, by the
advice of one member of Samuel's secretariat, Ernest T. Richmond.
Ernest Richmond was by profession an architect and had been
employed before the war in the Egyptian Public Works Department.
He was Storrs' intimate friend, and it was Storrs who, in r9r8,
rescued him from the Imperial War Graves Commission where he
was then 'eating out his heart',rr and brought him to Jerusalem in
order to survey the damaged fabric of the Dome of the Rock and
advise on restoration. Ife seems in due course, to have become some
kind of assistant to Storrs,sz with whom he shared a house in Jerusa-
lem - as he had shared a flat with him earlier in Cairo. When Samuel
was appointed high commissioner he chose Brigadier Wyndham
Deedes as his civil secretary, and on the latter's suggestion the Foreign
Ofrce were asked at the beginning of August tgzo to release E. M. B.
fngram, then acting as private secretary to Lord Milner - who was
then engaged in negotiations with Zaghhrl - so that he might serve
as political secretary in the newly-organised secretariat at Jerusalem'
63
 THE CHATHAM HOUSE VERSION
The Foreign Ofrce were not willing to release Ingram, and suggested
instead James Morgan of the Levant Consular Service. At this point
Storrs seems to have suggested Richmond for the post, and with the
high commissioner's approval on 3 September he sent this telegram
to Richmond who was then in London:
Post vacant in civil secretary's office salary rooo plus roo allowances.
Duties general administration and of nature agreeable and suitable to
yourself. I recommend.

The telegram did not reach London at the time, and failing to receive
an answer, Storrs wrote again to Richmond who now made enquiries
at the Foreign Office. Eventually the telegram was repeated on z4
September and at last communicated to Richmond. A telegram from
the Foreign Office on z7 September informed Samuel that his offer
was accepted.ss
Richmond was appointed assistant secretary (political). His duties
in this office were of the highest importance. He was to maintain
liaison between the government and the Muslim community and, in
effect, to be the high commissioner's chief adviser on Muslim affairs.
Towards the end ot rgzz the Colonial Office proposed to change his
title from assistant secretary (political) to second assistant secretary.
Richmond took this to be a downgrading of his office and contem-
plated resigning unless his original title was maintained. Samuel
wrote a dispatch on z7 December, urging his case and accompanied
it by a private letter to Shuckburgh of the Middle East Department
in which he stated that Richmond's resignation 'would have con-
siderable political consequences. In the absence of any Arab in the
higher ranks of the administration, Richmond who is in close and
sympathetic touch with the Arabs, acts as a most useful intermediary.
If he were to go', the high commissioner concluded, 'there is no one
to take his place'.84 By the following July the question of Richmond's
ofrcial title had still not been settled and Sir Gilbert Clayton, the
chief secretary, who on Samuel's absence on leave was then officer
administering the government, took the matter up in another
dispatch. His description of Richmond's function in the administra-
tion was somewhat difierent from Samuel's, and it is interesting to
see how the duties of the assistant secretary (political) had by then
developed. 'With regard to Palestine itself', wrote Sir Gilbert Clay-
ton, 'rightly or wrongly, the Political Section, and more especially
the present head thereof, has become the principal medium of
64
 SAMUEL AND THE GOVERNMENT OF PALESTINE
personal approach to the government available to the Arab elements
and is regarded in that respect as to some extent the counterpart of
the Zionist Organisation'. 86
The anomaly of a high British official in the secretariat being re-
garded as the Arab counterpart of the Zionist Organisation was noted
by someone at the Colonial Office who pencilled this comment on the
margin of Clayton's dispatch: 'but the Arabs don't pay for it'. As the
minutes on Samuel's earlier dispatch and letter show, the Department
in London was well aware of Richmond's sympathies and how their
overt expression was little consonant with British policy. A minute
by Mr Clauson is particularly noteworthy:
I must admit fhe wrote] that I should not personally have one minute's
regret if Mr Richmond resigned, he is by trade an architect, not a Secre-
tariat officer at all, and he has entered the latter profession too late in
life to make it possible for him to adapt himself to it. Moreover [Clauson
addedl he has not taken any particular pains to adapt himself to it; he is
a declared enemy of the Zionist policy and almost as frankly declared an
enemy of the Jewish policy of H.I\{.G. . ' ' Indeed [he concluded] I think
that the government, so far from losing would gain very greatly by
excluding from its Secretariat so very partisau a figure as Mr Richmond
and starting again on a strictly non-partisan basis.r0

In the event Richmond did not resign until March r9z4 and
when he did, addressed to the high commissioner a remarkable
letter. The letter, dated 13 March 1924, apPeats to be an answer to an
invitation to a dinner. In it Richmond says that he had been led
'gradually and most reluctantly, but definitely' to believe that the
Zionist commission, the Middle East Department of the Colonial
Office and Samuel's own administration'are dominated and inspired
by a spirit which I can only regard as evil'. He finds himself completely
opposed to these policies, but his opposition is not merely political,
but moral or even religious. He had tried to alter the machine, but
had completely faited and now had to go. He found repugnant any
act which implied fellowship with this evil' Such an act would be
dishonest'because there is no fellowship of spirit; on the contrary
there is enmity; not, I hope, personal, but still enmity" If, knowing
all this, Samuel still wanted him to come to the dinner, he would do
so, but he would do so in the knowledge that he was committing a
dishonest act, 'that, in coming, I am sacriflcing something of right
conduct to the duty I still owe you as my chief for the time being'.8?
During his three-and-a-half years in the Secretariat, then, Richmond
65
 THE CHATHAM HOUSE VERSION
was as he said, trying to alter the machine. This may explain and
justify his activities on behalf of Hajj Amin in the year r9zr. As has
been seen, by the end of April the high commissioner was d.isposed to
delay the appointment of the mufti on the ground that the election
of rz April was technically imperfect. An unsigned note of 3 May
which is most probably by Richmond suggested that the post of
'Grand Mufti' should not be left open any longer, that a quick settle-
ment would have a good effect, and proposed the issue of a notice to
the effect that
the recent election havirrg been shown to bc irregular is null and void,
that in the view of the reception by the government of Mazbattas from
the Mudarisin, Imams, Ulemas and numerous individuals throughout
Palestine in favour of the appointment of Al Hajj Amin al-Husseini, the
government considers it to be clearly proved that the people of Palestine
desire the nomination of AI Hajj Amin and consequently nominate him.

At the bottom of this note the civil secretary Wyndham Deedes

wrote: 'I don't agree'.s8 The suggested notice was never issued, but
by means which are as yet unclear, by ro May Shaikh Hisam al-Din
Jarallah was prevailed upon to withdraw his candidature.so Further-
more, Hajj Amin organised on 3r May a meeting of nine religious
dignitaries and notables before whom the mufti of Nablus delivered
an opinion that the election of rz April was invalid. We may add
that the same mufti of Nablus delivered on the following day an
opinion - which is also on the file - that this election was quite valid.
The minutes of the meeting of 3r May were written and signed by
Hajj Amin and translated by Richmond. The high commissioner was
still not prevailed upon to announce officially the election of Hajj
Amin, but from a memorandum by Richmond dated 7 June we learn
that on a date not specified - probably after ro May - Samuel and
Deedes privately assured Hajj Amin that he was appointed mufti.
This memorandum, a long and remarkable document, was therefore
devoted to obtaining for Hajj Amin a formal and public letter of
appointment. The memorandum, in the first place, emphasises the
overwhelming desire of the people to see Hajj Amin appointed mufti.
Richmond produces an imposing list of Muslim divines, notables and
beduin shaikhs who, according to him, were all for Hajj Amin, and
adds to them the Orthodox patriarch, the Syrian bishop, the locum
tenens ol the Armenian patriarch, the head of the Armenian part of
the Church of the Holy Sepulchre, the bishop of the Coptic convent
66
 SAIUUEL AND THE GOVERNMENT OF PALESTINE
and monks of the Orthodox church. In contrast to this overwhelming
support, opposition to Hajj Amin, Richmond tried to show, was most
suspect. It consisted of the Jews who were believed by 'a very large
number of people' to be against Hajj Amin and to have arranged the
election so that he might be set aside; their efforts were seconded by
what he called the 'intrigues of the Nashashibi faction' which were
favoured by the legal secretary. In the circumstances, this was clearly
meant to be a telling, indeed a clinching argument. The legal secretary
was Mr Bentwich, not only a fellow-Jew but also a relative of the
high commissioner's. About him Richmond was outspoken. As has
been seen, the mufti of Nablus having declared on 3r May that the
election of rz April was invalid, proceeded the very next day to
change his mind and produced an opinion that the election was valid.
This opinion the legal secretary seems to have sent to Deedes. Rich-
mond now pronounced it obscure - which it was - and he questioned
the legal status of the mufti of Nablus to pronounce on such a matter;
'but the chief point to bear in mind', he added, 'is that no opinion
emanating from the legal secretary or his entourage or from any one
dependent in any degree on the favour of his Department will at the
present time be regarded as other than suspect by a very large
majority of the people in this country'.4o What effect such an argu-
ment had on a high commissioner jealous of his honour and deter-
mined to avoid the slightest aspersion on his uprightness and equity
we can only conjecture. Moreover, as a minister Samuel had hitherto
dealt with civil servants who avoided political commitment and whose
primary purpose in tendering advice was to ensure the carrying on of
the king's government. Most probably, he had so far never had to
deal with a senior civil servant who believed passionately that it was
his duty to alter the machine which his superiors expected him to
maintain, and he may therefore have taken for granted that advice
received in Jerusalem would rest on the same tacit assumptions
which obtained in London.
The upshot of the Husaini campaign supported by Richmond from
inside the Secretariat was that Hajj Amin was allowed tacitly to
assume the ofhce of mufti. He received, however, no official letter of
nomination and his appointment was never gazetted,ll which may
indicate that Samuel had misgivings over the whole affair. But Hajj
Amin did occupy the office of mufti of Jerusalem, did style himself
'Grand Mufti', and did claim that he was the head of the Muslim
community in Palestine. Richmond himself, in one memorandum
67
 THE CIIATIIAM IIOUSE VERSION
after another from August to October rgar did his best to enhance
Hajj Amin's position by arguing that his salary should be higher
than that of other muftis - he quoted an argument of Storrs' to the
effect that after all the bishop of Iondon was paid more than the
bishop of Chichester - and by insisting time and again - and it was
sheer insistence buttressed by no evidence - that the mufti of
Jerusalem was the head of the Muslim community, that to treat him
on an equality with other muftis would not be received 'with quiet
acquiescence' by the Muslims of Palestine, and that such a step would
be likely to be regarded as 'a deliberate attempt to slight the Moslem
community'.{z What in retrospect Richmond thought about it all, or
at any rate what he would have wanted the world at large to think is
indicated by a letter which he drafted in August rgz3, in answer to
one which Colonel Kisch, chairman of the Palestine Zionist Executive
had sent to the chief secretary the previous January. In this letter
Kisch had said that 'if, by arranging the appointment of the present
mufti, through means involving a direct departure from the estab-
lished procedure, the government hoped to earn the collaboration of
this party in matters not connected with the Jewish National Home,
it must by now have been gravely disillusioned'. Richmond's draft
answer constituted an utter rebuttal of Kisch's argument: 'While I
do not recognise the existence of any obligation on the part of the
government to reply to criticisms in respect of its appointments,
nevertheless I think it worthwhile in this instance to put you in
possession of the facts'. 'The facts', according to this draft were that
'His appointment was desired by a great majority of the Arabs of
Palestine and took place in accordance with existing regulations. To
have thwarted that desire would not have reacted favourably on the
welfare of Palestine or on that of any section of the inhabitants, not
excluding the Jews'. Clayton, at the time officer administering the
government, ordered that the draft should not be sent, and the
question allowed to drop.{8
In protesting against the appointment of the mufti, Kisch of course
was concerned with the effects of this appointment on Zionist work in
Palestine. These effects are widely known and need not be laboured.
But it is worth while considering briefly its efiect on the Arabs of
Palestine. If Hajj Amin had received enough votes on rz April
tgzt to be included in the list of candidates from which the high
commissioner was to choose the mufti, and if Samuel had chosen
him, the appointment, while admittedly bizarre, would have indi-
68
 SAMUEL AND THE GOVERNMENT OF PALESTINE
cated respect for the due process of law and would thus have perhaps
served to conciliate the Palestinians by showing them that here was a
government which respected elections and the wishes oI the Muslims
in the management of their communal afiairs. Again, if the high
commissioner had chosen to disregard the election and by an exercise
oI free arbitrary power appointed Hajj Amin - or anybody else - as
mufti, he would have been behaving like the generality of Muslim
rulers whose cavalier treatment of the religious institution is an
abiding theme of Islamic history. From such an exercise of preroga-
tive, the Palestinians would have concluded that a high commissioner
was only a sultan writ in Frankish letters, and would have adjusted
their behaviour accordingly. But to have tacitly allowed Hajj Amin,
in response to agitation engineered by the Husaini clan to become
mufti, and that without a letter of appointment defining the length
and conditions of his tenure, was to invite the Palestinians to con-
clude that in Palestine rent-a-crowd was king; and to allow the
Husainis, already powerful enough in Palestine, to become the self-
appointed exclusive and irresponsible spokesmen of the Palestinians,
whose power their fellow-countrymen could, as the sequel showed,
challenge only at their peril. It was the Husainis who directed the
political strategy of the Palestinians until t947, and they led them to
utter ruin.
The establishment of Husaini dominance over Arab Palestine was
made easier by another development which followed shortly after
Hajj Amin's elevation. This was the creation of the Supreme Muslim
Council. Speaking in a debate on Palestine in the House of Lords in
December 1938 Samuel pointed out that the system of. millet or
communal organisation as developed in the Ottoman empire was
something suited to middle eastern conditions and that on taking
over from the military in Palestine he had come to the conclusion
'that this system of communities was in the main the right one'.{a
This was a shrewd and judicious appreciation. From it the conclusion
naturally followed that just as the Jews and the Christians had their
long-established communal organisations so the Muslims, who had
not needed such an organisation under the Ottoman regime, should
now also have theirs. Such a communal organisation was necessary to
manage the extensive Muslim religious endowments or uaqfs, hither-
to administered by the Ottoman government, to choose and appoint
imams and preachers for the mosques, arr.d qadis for the religious
courts - these functions also having been previously discharged by
69
 THE CHATHAM IIOUSE VERSION
the Ottoman administration. 'For the British administration to
assume control of the endowments and make appointments to the
offices', remarked Samuel in his Memoirs, 'we did not consider
advisable'. And he added: 'particularly an administration pledged to
promote in Palestine the establishment of a Jewish National Home'.{5
Here then was another consideration adding weight to Samuel's
general preference for communal organisation. It is worth examining
what it is which specifically gave point to Samuel's belief that it was
undesirable for an administration pledged to promote the establish-
ment of a Jewish National Home to supervise and regulate Muslim
religious affairs. At the beginning of r9r8 the British government
decided that a Zionist commission headed by Weizmann should go to
Palestine. It was not quite clear what exactly it was to do there, or
what powers it had, but its presence in the country, its access to the
commander-in-chief and to other senior officers, rightly or wrongly
gave the impression that it was a privileged body with extraordinary
powers which no authority in Palestine was able to restrain. The
Palestinians could not help but contrast the humble and difficult
position of the Zionist settlers in Ottoman times, with their seemingly
exalted position under the British occupation, with this Zionist
commission to protect them and advance their interests. It was not
simply the nrere existence of the Zionist commission which gave rise
to fear and antagonism; the activities of some of its members helped
to intensify dislike for it. There was, for instance, the aggressive and
persistent Jabotinsky, Ussishkin, whose attitude Meinertzhagen -
not an enemy of Zionism - described in a dispatch of November r9r9
as 'one of overbearing intolerance with a contempt for comprornise',ao
and Weizmann himself. Though more subtle and politic than his
colleagues, Weizmann was yet not averse from trying to make British
authorities act as though the Balfour Declaration meant much more
than they were prepared to concede, and he also must have found it
difficult to restrain a legitimate feeling of triumph. His behaviour at
the period may be illustrated by two sigaificant episodes. 'As to
Weizmann and Palestine', wrote Curzon in a letter to Balfour on
z6 Jantary r9r9,'l entertain no doubt that he is out for a Jewish
government, if not at the moment then in the near future', and he
went on to describe how, in the draft rnandate for Palestine, to the
words 'all necessary arrangements for the establishment in Palestine
of a Jewish National Home', Weizmann had added the words: 'or
Commonwealth'. 'You meant the first', Curzon observed, 'but he
7o
 SAMUEL AND THE GOVERNIIIENT OF PALESTINE
interpreted it as meaning the second'.{? It is reasonable to suppose
that the tactics he tried in his dealings with Balfour, Weizmann
would also employ in Palestine. The second episode dates from
November r9zt, and. may give us an idea of the impression which the
Zionist leader made in the years immediately following the Balfour
Declaration, The Colonial Office had succeeded in arranging a private
meeting between the Arab Delegation then visiting London and the
Zionist Organisation and we have a report on the proceed.ings in a
minute by Mr E. Mills, who was later to serve in Palestine and who
is not known for anti-Zionist prejudice. 'Doctor Weizmann', recorded
Mills, 'while his speech was conciliatory, adopted an unfortunate
manner in delivering it. His attitude was of the nature of a conqueror
handing to beaten foes the terms of peace. Also I think he despises
the members of the delegation as not worthy protagonists - that it is
a little derogatory to him to expect him to meet them on the same
ground'.r8 It is fair to assume that if such was the impression gathered
by a not unfriendly observer in rgzr, then the same impression could
have been derived by others, two or three years before.
The Zionist commission and the reactions to which it gave rise
were not anything for which Samuel was responsible. Rather, he had
to take account of them when he came to administer the country.
And we do know that the widespread notion that the Zionist com-
mission and the Palestine government were one and the same body
gave him considerable worry. In November rg2r his civil secretary
Wyndham Deedes wrote to Shuckburgh at the Colonial Office a
private letter. He stated that he was writing at the high commissioner's
suggestion, and went on to express alarm at the growing mistrust
manifested by the Arab population for the administration; he attri-
buted it to the fact that every administrative measure was believed
to be inspired by the Zionists 'and impotently to have been accepted
by the administration'. fn the eyes of the Arabs, he declared 'the
administration and the Zionists are one'. To remedy this situation,
Deedes suggested, the anomalous position of the Zionist Organisation
in the mandate 'should be abolished' and the administration should
be 'left to govern this country with the help of a body in which all
sections of the community should be adequately represented'.{0
Deedes' suggestion was not feasible; hence it was all the more im-
portant that an administration which laboured under such suspicion
should allow Muslims freedom in the management of their religious
afiairs. At a conference of notables, muftis and principal ul,amas in
7r
 THE CHATHAM HOUSE VERSION
November r9zoit was agreed to set up a Muslim communal organisa-
tion, but it was also agreed that the government should retain finan-
cial control over the administration of Muslim religious endowments
(which had hitherto been exclusively the affair of the Ottoman
government).60 But we find that in subsequent negotiations, after
Hajj Amin became mufti, this stipulation totally disappeared.
Regulations promulgated at the end of. tgzt provided for the setting
up of a Supreme Moslem Council to be composed of a Rais al-Ulema
who was to hold office permanently and of four members elected for a
period of four years each. This council was to have unfettered control
over the management of religious endowments and the expenditure of
income therefrom, over the appointment and dismissal of. all shari'a
and waqf officials and over the nomination - and virtually the
appointment - of. qad.is. And all these enorrnous powers which touched
innumerable Palestinians in their livelihood and welfare were almost
totally exempt from official inspection and control. Samuel's object
in agreeing to these regulations may be gathered from a passage in
his dispatch transmitting the regulations to London: 'I believe', he
wrote, 'that the final settlement of the Moslem religious question
will be acceptable to the Moslem population of the country and will
bring them assurance that the government desires in every way that
they should have complete control of their own religious afiairs and
religious endowments', 61
Those who were to elect this powerful body, as the regulations
stipulated, were the secondary electors who had been elected at the
last Ottoman elections which had taken place in May r9r4. This
committee met on 9 January rgzz. Oat of fifty-six electors, fifty-three
were present. A motion supported by Raghib al-Nashashibi proposed
postponement of the elections; it was lost by forty-three votes to ten,
whereupon Nashashibi and five others withdrew from the meeting in
protest. The remaining forty-seven electors proceeded to elect the
council and Hajj Amin was by forty votes chosen Rais al-Ulema, or
president of the council. It was a life appointment and it gave him an
income of over {roo,ooo a year to dispose of and extensive patronage
which enabled him to set up and head what the Peel Commission in
their Refort called a third parallel government in Palestine62 - the
other two of course being the government of Palestine and the Jewish
Agency. Of these three governments, the Supreme Moslem Council
was the most irresponsible, the least fettered by the rule of law, and
the least amenable to public agitation or pressure. In spite of the
72
 SAMUEL AND THE GOVERNMENT OF PALESTINE
regulations which provided for periodical election of members - but
not of the president - the members elected in tgzz remained in
office until late in 1937 when the Palestine government at last brought
itself to disband the council and thus publicly to recognise - though
never explicitly - to what despotism its own policies had abandoned
the Arabs of Palestine.6s
By the mid-rgzos, then, both the Jews and the Arabs had, as
H. J. Simson put it in Britisk Rule and. Rebellion (one of the most
percipient books written on Palestine under the mandate), succeeded
'in growing crocodile skins round their respective communities,
through which the rule of the government of Palestine hardly pene-
trated at all'. And the same author went on:
Though there were plenty of representatives of the civil power through
out the country, they dealt in all cases with one, or possibly with two
communities, each having an organisation of its own, and each with a
voice speaking in Jerusalem. The voices were seldom silent, and .were
usually complaining of or objecting to something. As a result, rule in
Palestine was over-centralised, the voices in Jerusalem were heard too
often, and conciliation took the place of rule. So there was order, followed
by counter-order, and, in consequence, disorder,6.

Samuel also devised another strategy to conciliate the Palestinians

and wean them of their fears. This was to allow them a say in govern-
ment through representation in a legislative council. The Palestine
Order-in-Council, issued in August tgzz, provided for a legislative
council to consist of ten official and twelve elected members. Of these
eight were to be Muslim, two Jewish and two Christian. Elections
were to be conducted according to the Ottoman law. The Palestinian
leaders at once declared that unless they were given a clear majority
over the officials and the Jews, they would refuse to cooperate in the
elections. These leaders no doubt calculated that by being intran-
sigent they would obtain more from the British government than by
cooperating, and thus tacitly acquiescing in the mandate and the
Zionist programme which it incorporated. Their attitude may also
have been more than mere tactical calculation. For neither then nor
later did the Palestinian leaders (who were of course largely Muslim)
accept the fact that they were no longer the masters in the country
and members of a ruling group which dominated not only Palestine,
but also an extensive empire. They formed part of the Muslim world
and their attitude was governed to some extent by their relation to
7s
 THE CHATHAM HOUSE VERSION
this world. This preoccupation comes out clearly in a letter from the
mufti of Haifa reporting to Hajj Amin on the results of a journey to
India which he undertook after the boycott of the legislative council
elections in ry4.
We reached the country [wrote Muhammad Murad, the mufti of Haifa,
on 17 December r9z3] and Iound repugnance by every Muslim towards
anyone who was Arab; if told, Here is an Arab, they took him to be like
the Sharif Husain of whom they say that he betrayed Islam and caused
the ruin of the caliphate. We were conscious of this situation immediately
we arrived in the country, even though the leaders tried to disguise it out
of politeness and kindness. We began to rebut this notion and to show
all that Palestine had done in giving total aid to the Turkish army and
how she fought to the end, etc, We explained to some of them the
situation in Palestine, and the success in the boycott of the elections and
of the advisory council was of the greatest help in rebutting these allega-
tions. The truth is that this boycott, and our success in it, compelled
everybody to respect us at the start, especially the leaders who greatly
admired this success.66

We must also remember that this consciousness of belonging to a

ruling, an imperial grouP, played its part in making the Palestinian
leaders adopt the rigid and cutting attitude towards Zionism, which
was characteristic of them from first to last.
At the beginning of tga3, then, the government announced that
elections for the legislative council would be held shortly. The
Palestine Arab Congress immediately mounted a vigorous campaign
against it, which succeeded in frightening off both candidates and
electors. Those participating in the elections were branded as traitors,
to be cursed publicly and boycotted by their community.6e 1n"
campaign was all the more successful in that the government remained
utterly passive in face of it. In his Final Report on the Administra-
tion of Palestine, Samuel remarked that 'the government did not
regard it as its duty to exercise any Pressure on the peoPle to partici-
pate';6? but the govemment not only did not regard it its duty to
put pressure on the electors to vote, it also did not consider it its
duty to take action against those who were using Pressure to prevent
voting. The secretary of the executive committee of the Palestine
Arab Congress, Jamal al-Husaini, could insolently taunt the govern-
ment with its inaction. The government, he wrote, had promulgated
laws with special penalties against intimidation: 'But so far', he
went on, 'the government brought up only one single case where
74
 SAMUEL AND THE GOVERNMENT OF PALESTINE
three of the accused were acquitted and the fourth condemned to
pay a fine of. {825. lVhat made the government shrink from applying
its own laws when they cherish such beliefs we cannot tell'.58
The results of the election were such that the high commissioner
was compelled to announce that the scheme to set up a legislative
council was being suspended because the people 'have not fully
availed themselves of the opportunity offered to participate in the
government of the country through elected representatives'.5e This,
of course, was for the Palestine Arab Congress a considerable -
though an easy - victory. A minute of z3 February rg23 by Mr
Moody - who had served as an administrator in Palestine and who
was then seconded to the Colonial Office - was acute and sagacious
in describing the situation: 'In order to effect a boycott of the elec-
tions', Mr Moody wrote in comment on the Political Report for
January, which gave an account of the boycolt, 'resolution is not
required on the part of the Arab populace; only apathy and inertia.
The executive committee of the Arab Congress is flogging a dead
horse. If the elections fail they will claim the result as a victory for
themselves, and a defeat for the government. It is a pity to have
given them such an easy mark'.oo But one could go further and say
that even if there had been no boycott and a legislative council had
been elected, yet this would not have ensured the representation of
the Palestinians and their involvement in the process of government
which Samuel desired. As elections in Ottoman times showed, the
result of electoral exercises followed the wishes not of the population
but of the government. If, as in this case, the government did not
interfere and even allowed or condoned a boycott, to the people this
only meant either that the government was secretly opposed to
elections or was so weak that its wishes had better be disregarded
and its opponents supported. In such circumstances, as Moody
observed in a later minute, nomination was more suitable than
election. 'I have tried', he remarked, 'to conduct elections in villages
for the mukhtarship and uniformly failed'.u But elections had been
ordained; a boycott had then been proclaimed which the government
had done nothing to counteract. Those leaders therefore who had
advocated an extreme line were now triumphant. It was a situation
which was to be repeated again and again during the mandate. To
confine ourselves to Samuel's time, the failure of the elections led him
to propose the setting up once again of the nominated ailvisory
council which he had formed shortly after his arrival in Palestine.
?5
 THE CHATHAM HOUSE VERSION
Invitations to serve on the council were sent to ten Muslems and
Christians (who included Raghib al-Nashashibi, Arif al-Dajani,
Sulaiman Tuqan, Amin al-Hadi and Isma'il al-Husaini). They started
by accepting, but withdrew when agitation against them was
organised by the Palestine Arab Congress.o2 A few months later, still
in an attempt to provide the Palestinians with representative institu-
tions, the government offered to set up an Arab Agency, to be the
counterpart of the Jewish Agency. On this occasion the 'moderates',
knowing that the 'extremists' would reject the proposal, 'decided to
forestall them by publishing their own non-acceptance'.08 In his
minute of z3 February, when all these developments were still in the
future, Moody had written with prescient common sense: 'In Palestine
a politician cannot hope to be successful unless he is an extremist.
The personal influence of the Arab extremists on the effendis h the
towns is great. The personal influence of the efendis over the
fellaheen in the villages is even greater . . .'. The government's quest
for representative Palestinians had put it - and the Palestinians - at
the mercy of the 'extremists'.
If this was so - and beyond any doubt, it was so - the attempt to
introduce European representative devices among the Palestinians
was hopeless. It is of course perfectly true that the people of Palestine
were at one with those who claimed to speak for them in their utter
opposition to Zionism. But this was not enough to make these leaders
representative, for they were neither properly or periodically elected,
nor were they amenable to the checks and controls which representa-
tion normally entails. One of Samuel's successors, Sir Arthur
Wauchope, once asked a delegation of the Palestine Arab Congress
how they had come to be appointed representative of the Arab
population. He was answered by Jamal al-Husaini who said that
from the government point of view they were not elected officially, but
the Arabs accepted them as their representatives aud since r92o, govern-
ment had also recognised the Arab executive as rePresentative. They
represented both the townspeople and the village population. The actual
executive was composed of forty persons, who represented the three
hundred members of the [Palestine Arab] Congress."

Jamal al-Husaini's claim was, of course, untenable; but the Palestine

government, anxious to balance Arab against Jewish representatives,
and trapped by its own long and futile quest for representative
institutions, was in no position to contest it.
76
 SAMUEL AND TIIE GOVERNMENT OF PALESTINE
There remains one device to be considered, by which Samuel hoped
to conciliate the Palestinians and make Zionism more acceptable to
them. His partiality for it appears very early in his connection with
Palestine, and he continued to favour it long after his period as high
commissioner. The device was to involve in one way or another
Palestine's Arabic-speaking neighbours with Palestine and its
problems, in the belief that this would lessen friction in the country
and reassure the Palestinians. Samuel, in other words, was an early
believer in pan-Arabism. It was immediately following his first visit
to Palestine that Samuel broached to Curzon the scheme of an Arab
union in which Palestine would be included. While in the country he
had heard that the military administration, alarmed at the doings of
Faisal's followers in Damascus and at the anti-Zionist sentiments of
the Palestinians, was advocating that Faisal should be recog:nised as
the king of a united Syria, including Palestine.c6 Samuel rightly con-
sidered this scheme a threat to Zionist interests, and proposed an
alternative scheme: 'I think', he wrote to Curzon, 'the solution lies in
the formation of a loose confederation of the Arab-speaking states,
each of which should be under its own appropriate government, but
all of which should be combined together for common and economic
purposes. The seat of such a confederation should be Damascus, and
Faisal might be recogrrised, not only as sovereign in his own state, but
also as the honorary head of the confederation'. As Samuel envisaged
it, the union would be 'principally economic and not political'; and
Palestine, ruled by Great Britain under a mandate embodying the
provisions relating to the Jewish National lfome, would form part of
it. Curzon's immediate reaction to the proposal was to dismiss it
briefly. He minuted Samuel's letter: 'A federal council at Damascus
with the League of Nations behind it fills me with no sort of
enthusiasm'.60
Samuel's scheme of confederation was not a mere passing response
to a momentary threat. On the contrary. The idea that Palestine's
difrculties would be less intractable if her neighbours took an interest
in her aflairs seems a recurrent one in his thoughts. In his letter to
Curzon where he commented on Allenby's fears regarding his appoint-
ment to Palestine he insisted on the importance of an understanding
with Faisal. 'If that could be effected', he wrote, 'the Arab extremists
in Palestine would have no ground on which to stand'.67 This, of
course, was an illusion since the Sharifians had neither power nor
following to control or influence events in Palestine. The illusion was
77
 THE CHATHAM HOUSE VERSION
widespread among both British and Zionists and took a very long
time a-dying.
Some two years after suggesting the Arab economic union, Samuel
once more put forward a scheme of Arab unity by which, he hoped,
the situation in Palestine would be eased. In a letter to the secretary
of state of rz December tgzz, Samuel suggested that the government
should promote a confederation of Arab states to include the Hijaz,
Syria, Palestine, Trans-Jordan, Iraq and possibly Najd. The president
of the confederation would be the king of the Hijaz, and there would
be a council to look after the common interests of the confederation,
such as communications, customs, extradition, culture, and religion.
'More important, however, than any specific functions of the council',
he went on, 'would be the fact of its existence. This in itself would give
satisfaction to Arab national aspirations. The confederation would be
a visible embodiment of Arab unity, and a centre round which the
movement for an Arab revival - which is a very real thing - could
it
rally; would give leadership and direction to that movement,
especially on its cultural side'. The Zionists, he declared, would
welcome such a scheme, as they 'would regard the advantage of
satisfying the reasonable national aspirations of the Arabs and of
securing cessation of open and persistent Arab opposition to Jewish
expansion in Palestine, as far outweighing the possible future risks
that would be involved in Palestine becoming a member of a distinc-
tively Arab polity'. With Samuel's letter was included a memorandum
by his chief secretary, Wyndham Deedes, in which he argued that
because the Jewish question was restricted to Palestine, this tended
to make the feeling on both sides intenser and more bitter: 'If the
question of a Jewish National Home were envisaged as part of the
revival of eastern civilisation in which both Arab and Jewish national
life were to be fostered by England and France, there would be more
hope of cooperation and good understanding ...'. These proposals
were received with much scepticism in the Colonial Ofrce. In forward-
ing them to Curzon for his comment, the duke of Devonshire wrote,
in a letter of ro January rgz3, lhat Samuel's scheme would irritate
the French; would arouse Ibn Sa'ud's suspicion; and would not give
the Palestinians what theywanted, namely abandonment of Zionism,
but merely'furnish them with a convenient machinery for further
protest and agitation'. He concluded: 'As an attempt to promote
cooperation between a number of people who have little in common
with one another and are torn by mutual jealousies, it would be very
78
 SAMUEL AND THE GOVERNMENT OF PALESTINE
unlikely to succeed'. Curzon's criticism proved even more scathing.
The objections to the scheme, he wrote in a letter of r8 January, were
'overwhelming'. As things stood in Palestine, the British government
had only two stark alternatives: 'either to rely on Arab support which
involves the renunciation of the Zionist policy, or to rely on
Jewish
support which entails facing the persistent hostility of the Arab
element of the population'. Samuel's method of squaring the circle
would simply not work. Curzon had a few observations to add con-
cerning the feasibility of relying on the Arabs which exemplify the
shrewd, informed judgment which he usually brought to bear on
issues of eastern policy - but which, it is true, was not always matched
by resolute execution. 'Reliance on the Arabs', he wrote, ,seems to me
a policy fraught with considerable danger. It is true that their present
hostility is ascribed to our Zionist policy but I feel by no means
confident that were that policy to be abandoned we could permanently
count on Arab friendship. Our difficulties in Iraq, which no one can
attribute to Zionism, should warn us against staking everything on
friendly Arab collaboration'.o8 Here, surely, stated in a nutshell, we
find expressed the essential objection to the pan-Arab adventure on
which successive British governments embarked in the decade which
began with the Palestine Round Table Conference of 1939.
This conference came about as a consequence of the palestine
Arab rebellion which began in 1936. Almost from the start of the
rebellion offers of mediation were made to the British government.
But both the Palestine administration and the Colonial Office firmly
rejected these attempts to interfere in a territory under British
mandate. Mediation by Iraq, declared the chief secretary of the
Palestine government, would implicate her too closely in the affairs
of Palestine 'and thus strengthen claim of king of Iraq and associates
of Arab rulers to intervene directly in the mandated territory,.so
'His Majesty's government', the Foreign Office categorically informed
the British ambassador at Baghdad, 'clearly cannot agree to any
foreign statesman negotiating or mediating betryeen them and the
Palestine Arabs'.?o In response again, to an ofier by the prime minister
of Egypt to use his good offices in Palestine, the foreign secretary
informed Sir Miles Lampson at Cairo that 'while I have no desire to
appear as if administering a rebufi to Nahas Pasha I do not wish to
let His Excellency think that by influencing Palestine Arabs to
co-operate with the Royal Commission he would be placing His
Majesty's Government under an obligation to him, Nor generally do

79
 THE CHATHA}I HOUSE VERSION
I wish in any way to encourage his intervention in this matter"Tr
was at this juncture, after the announcement of the Royal Com-
It
mission, but before its departure for Palestine, that Samuel proposed
to get in touch with Nuri al-Sa'id and endeavour to flnd some way out
of the difficulty. He informed the colonial secretary, Ormsby-Gore, oI
his plan. ormsby-Gore was not enthusiastic and advised Samuel not
to commit himself too far to Nuri, as negotiations of this kind might
'reopen the bargaining attitude of the Mufti & Co''?2 In company
with Lord Winterton, Samuel met Nuri at Paris on 19 and zo
September. A note of the discussions which he drew up shows that
Nuri's interest in these negotiations was only to advance a pan-
Arab scheme in which Iraq would have the primacy. A union between
Iraq, Palestine and Trans-Jordan, he told Samuel, would make the
Palestinians look with equanimity upon a large Jewish immigration;
and he pressed upon Samuel and winterton his proposal that he,
acting om.i"tty on behalf of Iraq, should mediate between the
palesiinians and the British government. Commenting on these talks,
winterton shrewdly observed that Nuri 'seemed to have the arrilre
pensle that he will some day become the deus ex " i-t lv; a
iederation of all Arabia' and that he made any comPromise soiu'ion
impossible.Ts
iUe noyat Commission on Palestine, reporting in the summer of
1937, proposed the partition of the country into a Jewish and an
erab slate. The proposal was open to all kinds of objections, and in a
speech in the House of Lords Samuel set them out in a masterly
fashion. To partition he himself preferred a'great Arab confederation
- not to Ue Uuitt up in a day or ayear' but gradually perhaps, built
up, including Saudi Arabia, Iraq, Transiordan, Syria, Lebanon and
Palestine as well'. In this confederation Jews and Arabs would co-
operate 'as they did in the great days of Arab civilisation, when
to
Jlwish statesmen, philosophers and scientists helped the Arabs
i<eep alight the torih of knowledge'. To this Lord Swinton replied
sharply:-'As he knows from his experience, and I know from my four
years at the Colonial Office, the diftculty was to get them to cooperate
Ln a Board of Works: are they likely to cooperate in an Arab federa-
tion?'?{
Samuel, however, remained convinced that the solution to the
Palestine problem lay through pan-Arabism. While on a visit to
Palestine and Egypt in the spring of 1938, he met, arnong others, the
Palestinian leader 'Awni Abd al-Hadi and the Egyptian heir to the
8o
 SAMUEL AND THE GOVERNMENT OF PALESTINE
throne, Prince Muhammad Ali. The latter told him that a form of
union between Palestine, Trans-Jordan, Syria and the Lebanon
would assuage the fear of the Palestinians of being swamped by
Jewish immigrants. Samuel went away convinced that since there was
nobody among the Arabs to speak on their behalf, action to break the
deadlock could be initiated only by the Arab rulers. He realised the
objection to foreign intervention in the affairs of a territory under
British mandate; but the advantages of such intervention clearly
outweighed the disadvantages, and indeed he saw no 'better line of
approach towards a possible agreement than through the prince5,.zs
By the autumn of 1938, things were no better, indeed worse, in
Palestine. Samuel saw Malcolm MacDonald, the colonial secretary,
and again proposed a course of action which would invite intervention
by neighbours of Palestine in the country's afiairs. He suggested the
dispatch of a British mission to Egypt, Saudi Arabia, Iraq, and Trans-
Jordan 'with a view to securing their cooperation on lines that would
be acceptable to the Jews'.ze In the end, things worked out as Samuel
desired. The British government itself decided - but not, of course,
in order to facilitate a solution acceptable to the Zionists - that it
would be advantageous to recognise outside Arab interest in pales-
tinian politics. They convened the Round Table Conferciice, whi.ch
Samuel welcomed in a speech in the House of Lords as .a visible proof
that His Majesty's Government recogaise that palestine is not merely
a local question and that just as it interests Zionists all over the world
outside Palestine, so also it interests Arabs outside palestine wherever
they may be, and particularly in the contiguous countries,. And he
went on to say that 'There should be extended encouragement to the
creation of a confederation of Arab states, in which palestine and
Trans-Jordan should form part'.zz The Round Table Conference \tras
of course only the beginning of a policy which culminated in the
sponsorship of Arab unity and the Arab League. This encouraged
and made possible the continuous and systematic interference in
Palestine affairs by Iraq, EglTt, Trans-Jordan and the others each
-
of course, in exclusive pursuit of its own interests. It was an illusion
to believe - as its various advocates did - that this policy would
either promote peace in Palestine, or advance British interests. As
the sequel showed, it also led the Palestinians, within a short space of
time, to stark and utter ruin.

8r
Sa'd Zaghlul and the British
An nesois, mi fili, quanlilla fruilcntia mundus lcgolut
OXENSTIERNA

and, whosoever considers that the nature of men, especially of men in

authority, is inclined rather to commit two errors than to retract one,
will not marvel that from this root of unadvisedness, so many and tall
branches of mischief have proceeded.
cLARENDoN, Histoty of the Rebcllion

When Sa'd Zaghlul went to see Sir Reginald Wingate, the high
commissioner in Egypt, on 13 November r9r8, to ask to be allowed to
go to London to demand independence for Eg5ryt, he was already an
otd m* with a crowded political past behind him. He had been born,
probably in 1857, in Ibiana, the son of a local well-to-do family with
iome ofrcial connections in the province; he had been sent to Cairo
to study at al-Azhar, and there became a disciple of Muhammad
Abduh who made him literary editor of, the Egyptian Gazette, of which
Abduh was editor for a few years, between the accession of Tawfiq
pasha to the Khediviate and the fiasco of the'urabi rebellion. while
he was literary editor, Zaghlul contributed an article to the Gazette
on constitutional government, which provides a remarkable indica-
tion of the views he then held, and with which both Egyptians and
British continued to associate him for many years later.
The tyrant [wrote Zaghlul] is usually defined as he who does what he
pleases irresponsibly, who rules as his passions incline him, whether this
agrees with ttre shar', or is contrary to it, whether it conforms to the
,inno o, differs from it' Because of this you see that when people hear
this vocable or something similar to it, they attribute to it this meaning
and are seized with displeasure at its mention, owing to the great mis-
fortunes they have derived from it, and to the great damage it has done
8z
 SA.D ZAGHLUL AND THE BRITISH
to peoples and nations, They are justifred in their displeasure and disgust
because they have derived from it nothing but misfortune and fronr its
rule nothing but mishaps. They have indeed seen that tyranny makes
souls perish unjustly, that it eats the possessions of men greedily, sheds
blood without due cause, and brings utter destruction on the country.
Therefore men are not to be blamed if they are disinclined to praise it,
even though some might understand by it something which is not its
usual meaning.
It is clear from *'hat we have said above that the Divine Law does not
allow it, and that it makes mandatory the limitation of rule by tradition
and law. But it is clear and obvious that the rules of the Divine Law
by themselves cannot limit rule, because they are but concepts present
in the mind of doctors and learned men, or else are indicated by means of
symbols set down in books. They are not sufficient to control the ruler
if he only has knowledge of them. For limitation of rule to be efficient,
there must be men who actually conduct themselves according to its
tenets, and who behave as these rules require, men who are ready to set
right the ruler, should he deviate from the true path, to exhort him to
keep to it and walk in its ways. It is for this reason that our Lord ,Umar,
may God be pleased with him, asked the people, in his well-known address,
to set him right whenever he erred in applying the rules of the noble s}ar,,
and for this reason God, the most high, said: 'Let there be formed among
you a group who call for good deeds, who prescribe that which is custom-
ary to consider good, and who prohibit evil, and these shall prosper,.
It cannot be denied that this noble verse calls generally on kings and
others to do good, it orders them to follow what it is customary to con-
sider good, and it forbids them the doing of evil, so that religion may be
firmly based, and nobody trespass his prescribed bounds whether he rules
or is ruled. This duty cannot be delegated, but is obligatory and in-
cumbent on all, as the doctors have stated - it was made obligatory on
the Muslim community that an umma, - meaning a ta'ifa lgroup] - drawn
from it should arise, whose duty would be to call for good actions, to
prescribe that which it is customary to consider good, and to prohibit
evil, in order that the Divine Law may be safeguarded, and in order that
those who are ternpted to transgress should not trespass its limits, and
those with wayward passions should not haughtily disregard it.l
The article, with all its limitations of style and argument, is, for its
time and place, a remarkable attempt to deduce the necessity of
constitutional government from the prescriptions of Islam. Whether
the attempt is convincing or not, the fact remains that Zaghlul
continued to be associated with such views after the 'Urabi rebellion,
when he became a lawyer with a private practice, and subsequently
a judge in the civil courts. It was on the strentth of these views, of
83
 THE CHATHAM HOUSE VERSION
his association with the disciples of Muhammad Abduh, and of his
reputation for uprightness and honesty, that Cromer chose him in
19o6 to become minister of education. Cromer had a high regard for
Muhammad Abduh, and considered that his disciples, whom he
called 'the Girondists of the Egyptian national movement'2 were the
only group with whom lay any hope of constitutional advance in
Egypt. Zaghlul was also known to be opposed to Mustafa Kamil,
whom he described as'mad'.3 His advancement was thus a deliberate
move to checkmate the khedive Abbas Hilmi, by encouraging those
to whom he was opposed. It was well-known at the time that the
khedive hated Muhammad Abduh, who had died in r9o5; it is
reported, for instance, that when he heard that some of his court
officials had attended Muhammad Abduh's funeral, he became very
ang4r and said: 'He is, as you know, the enemy of God, the enemy
of the Prophet, the enemy of religion, the enemy of the prince, the
enemy of the'ulama, the enemy of the Muslims, the enemy of his
people, the enemy even of himself, why then show him such regard?'r
The khedive did not like Zaghlul's appointment, and subsequently
came into conflict with him over the separate institution of a School
of Religious Law, which would not be under the control of al-Azhar,
a project which Zaghlul advocated and the khedive opposed. He liked
him even less when he suspected that Zaghlul, together with his
brother Fathi, was instrumental in organising Hizb al'umma, the
People's Party, a Party which stood for constitutionalism and
opposed the khedive's autocratic leanings.6 Zaghlul continued a
minister for a number of years, and went out of office in rgrz' While
in office, and also out of it, he showed in public the same moderation
which for Cromer was the hallmark of Muhammad Abduh's followers.
Thus, in r9o9, he was one of those who defended, against nationalist
clamour, the extension of the Suez Canal Concession;0 and when he
stood for membership of the Legislative Assembly in r9r3 his address
to the electors of the Cairo constituency where he was a candidate
confined itself to four points: he promised that, if elected, he would
press for judicial reform, for educational reform, for municipal
relorm in cairo, and that he would try to see that more attention was
given to the needs of agriculture.?
This was, by and large, the public reputation of the man who in
November r9r8 went with Abd al-Aziz Fahmi and Ali Sha'rawi,
both connected with the People's Party of Pre-war days, to see Sir
Reginald Wingate to demand Egyptian independence. It is true that,
84
 SA.D ZAGHLUL AND THE BRITISH
by then, he was generally identified as a leader of the Opposition
His activities in the two years preceding the war had caused the
residency to include him in its bad books. When he had resigned as
minister of justice in March rgr2, it was owing to a clash with the
khedive. 'He is', wrote Kitchener to Grey recounting the events which
led to Zaghlul's resignation, 'a very trying person to work with,
owing to a complete want of tact, and he does not get on well with his
colleagues or the khedive. Ever since his appointment, Saad Pasha has
been on more or less bad terms with His Highness.'Zaghlul, it seems,
had offered to resiga the previous May, but the differences were then
patched up. Kitchener had tried to compose their quarrels; 'I must
say however that Saad Pasha's character is very difficult if not im-
possible'. Zaghlul, claiming to base his conduct on honest conviction,
had continued to apply pinpricks to the khedive. To start with,
Kitchener had tended to be in his favour; but the incident which now
led to Zaghlul's resignation made him change his mind. It seems that
he accused of comrption Husain Muharram Pasha, who had recently
been appointed by the khedive as the trustee oI auaqf. These charges
he could not substantiate and 'I could not help thinking', Kitchener
wrote, 'that the fact that Hussein Pasha had replaced Saad Pasha's
brother-in-law in the post of under-secretary for war had a good deal
to do with the latter's attitude'. The khedive took grave ofience at
Zaghlul's accusation, holding it to be an attempt to besmirch his
reputation in Kitchener's eyes and said he would take no further
part in the administration if Sa'd remained a minister. Zaghlul had
then to resign.s
If Zaghlul's later career is any guide, his querulous parade of prin-
ciple may have stemmed from jealousy and disappointed ambition,
since he may have held that on Butrus Ghali's assassination in r9ro,
it was he rather than Muhammad Sa'id who should have been ap-
pointed chief minister.0 His subsequent activities quickly showed that
here was a man quick to invoke his 'honest conviction' but quite
flexible in changing it as circumstance required. When he went out
of ofrce, he seems to have coquetted with the Nationalist Party, whose
late leader he had called mad. This party, which was then opposed to
the khedive Abbas, promised to support him in the forthcoming
elections for the Legislative Assembly. The Nationalists, as one of
them wrote to their exiled leader, Muhammad Farid, believed that
they had bound him to their cause heart and soulro (qalbanwa qdliban).
Zaghlul, however, soon abandoned them for a more profitable
85
 THE CHATHAM HOUSE VERSION
connection. In a memorandum of June r9r4, Sir Ronald Graham, ad-
viser to the Ministry of the Interior, wrote that during these elections
Zaghlul was 'in constant communication with the palace'; and a
powerful press campaign was mounted in his favour. When the
Assembly met, he succeeded, with the active help of the palace, in
becoming the elected vice-president and became, as Graham put it,
the embodiment of the spirit of mistrust and hostility to the govern-
ment then being energetically promoted by the khedive. The khedive's
purpose then was to have his own way in regard to the sale of the
Mariut railway by which he stood to make a great deal of money.
Kitchener was adamantly opposed to what he considered to be a piece
of blatant corruption. Kitchener was also determined to transfer the
w aq J administration from the khedive's unfettered discretion. Control
over the waqf gave Abbas Hilmi access to considerable power, in-
fluence and riches, and he was therefore equally determined to resist
Kitchener's schemes. His resistance was such that Kitchener at one
point thought he would have to be deposed. It is therefore interesting
to see that Zaghlul and other followers of Abbas Hilmi organised in
the Legislative Assembly a noisy and strenuous opposition to the
proposal of transferring control of.the awqaf from the khedive to the
government. In the event, these and other attempts availed Abbas
Hilmi nothing, and he was compelled to follow Kitchener's wishes.rr
'His Highness the khedive', wrote Graham in the memorandum above-
mentioned, 'had been hard hit both in his pride and in his pocket, by
the frustration of the Mariut railway scheme and the formation of the
Woqfs ministry, He bore a bitter grudge against Mohammed Pasha
Said. Although worsted for the moment he was determined to show
that no Egyptian Ministry which did not enjoy his confidence could
carry on government for any length of time. In the new Assembly he
found a weapon ready to his hand, and in Saad Zaghlul a man who
could make good use of it'. Graham's description of Zaghlul's be-
haviour in the Assembly indicates how even then, and even on such a
restricted stage, Zaghlul showed talents and powers which were to
bring him to the fore some five years later: 'Saad Pasha Zaghlul',
Graham went on, 'was the dominating personality throughout the
session, and he has the makings of a successful demagogue. Able and
eloquent, he was able to sway the House by his speeches, and the lax
rules of procedure in force enabled him to speak again and again at the
same sitting on the same subject. In debate he was more than a match
for any of the ministers, none of whom could stand up to him'. But
86
 SA.D ZAGHLUL AND THE BRITISH
when the khedive left Egypt at the end of the session, Zaghlul's
'chief support' was withdrawn, and there were signs of revulsion
against him.12
Muhammad Sa'id was not able for long to withstand Abbas Hilmi's
displeasure and was dismissed in the spring of r9r4. The khedive
suggested to Kitchener that his successor should be Mustafa Fahmi.
This, on the face of it, was a surprising choice since Mustafa Fahmi,
who had served for many years as chief minister in Cromer's and
Gorst's time had, as Kitchener put it, always loyally supported the
British government, and had never been known as a friend of the
khedive. He was also Zaghlul's father-in-law, and it soon transpired,
as Kitchener reported, that he had fallen under his son-in-law's
influence, that he proposed to make a 'clean sweep' of pro-British
ministers, and substitute for them others who 'were chiefly distin-
guished for their devotion to Saad'. Kitchener tried without success
to make Mustafa Fahmi change his attitude, 'which I can only ascribe
to some promise given to his son-in-law in the matter'.l3 It was
Husain Rushdi who, in the end, was appointed chief minister. When
he was in Istanbul just before his deposition, Abbas addressed a
telegram of condolence to Zaghlul on the death of his father-in-law,
which, as Husain Rushdi reported to the khedive, created a bad im-
pression at the residency, being interpreted as an incitement to
opposition.la
When Abbas was deposed and Husain Kamil appointed sultan in
his place, he and Husain Rushdi seemed to have thought it prudent
to get Zaghlul on their side by offering him ofrce, but in view of his
'factious opposition and relations with khedive in last session of
Legislative Assembly', Milne Cheetham who was in charge of the
residency, refused, with Grey's approval, to entertain such a pro-
posal.l5 With this refusal, and with the Legislative Assembly pro-
rogued since the outbreak of war, Zaghlul had for the time being
no public role to play. But he made a show of loyalty to the deposed
khedive and thus indicated that he was an opponent of the pro-
tectorate and of those Egyptians who supported it. In a conversation
with Sir William Brunyate, the judicial adviser, some time before
Sultan Husain Kamil's death in r9r7, he protested against the con-
tinued prorogation of the Assembly; when Brunyate said that he
would have been in favour of convoking it so that it might swear
allegiance to Sultan Husain, Zaghlul replied that 'having upon
election sworn allegiance to the khedive, he would not personally
87
 THE CHATHAM HOUSE VERSION
have felt at liberty at that time to swear allegiance to the new
sultan.'ro
Towards the end of November rgr7, Sultan Fu'ad, who had that
year unexpectedly succeeded his brother, twice asked that two
ministers who were in office at his accession should be dismissed
because of their alleged comrption or moral turpitude, and that
Zaghlul and Abd al-Aziz Fahmi, a well-known lawyer, should be
substituted for them. This request was supported by Husain Rushdi
who was still the chief minister. Wingate, who had succeeded McMahon
as high commissioner, was not inclined to oppose an immediate and
categorical rejection to Fu'ad's request. 'That the inclusion of
Zagtiul and Fahmi will give the reconstituted Ministry a somewhat
stronger Nationalistic tendency', he wrote to Lord Hardinge at the
Foreign Office, 'is undoubted, but on the other hand I am not alto-
gether averse to this. As matters stand at present Zaghlul as vice-
president of the Legislative Assembly and with his Powers of oratory
has acquired a very predominant position and I am not at all sure
that we would not be wise to secure his support on the side of the
government rather than have him in opposition'.u But his appoint-
ment was once again turned down' This was due to Wingate's suspi-
cion that in proposing this change of ministers both Fu'ad and Rushdi
were trying to challenge British control and enlarge their own Power
and Egyptian autonomy. Resistance to this was a matter of principle,
and Wingate therefore was told that if the sultan continued to press
for the changes he should agree to one minister only being dismissed
and to Abcl al-Aziz Fahmi being appointed for a probationary period
as an under-secretary.ts There, for a year or so, matters rested. But
it would seem that Fu'ad continued privately to maintain close
relations with Zaghlul who together with Isma'il Sidqi, 'Abd al:Aziz
Fahmi and Amin Yahya, constituted what lVingate called Fu'ad's
oficine nocturne and which, he added, the ministers did not like.lo
These were the immediate antecedents, as they were known to the
high commissioner, of the man who came to visit him on 13 November
r9r8. They were, of course, quite unknown to the general public,
among whom Zaghlul's reputation remained as that of an inde-
pendent, opposition-minded politician, who had for years kept aloof
from court, residency and public office. But Wingate knew, if not at
the time then soon afterwards, that Zaghlul's visit had been concerted
with the sultan and his ministers.2o Fu'ad's accession to the sultanate
had been unexpected. But for the deposition of Abbas Hilmi, the
88
 SA.D ZAGHLUL AND THE BRITISH
early death of his successor Husain Kamil, the refusal of his son to
succeed him (and his unacceptability to the British government),
Fu'ad would not have become sultan. Wingate was not very en-
thusiastic about his candidature and would himself have preferred
outright annexation of Egypl.ar But the Foreign Office, concerned
with the possibility of discontent among the Egyptian official classes
if Egypt were to be made into a crown colony, and swayed by Sir
Ronald Graham's view that Fu'ad was generally acceptable and 'at
any rate not Anglophobe in his s5rmpathies',22 decided that he should
be offered the succession. When he became sultan, then, Fu'ad had a
position to make secure and consolidate, an authority to sustain and
increase, and this in the face of Abbas Hilmi's still unextinguished
claim to the throne, his ministers'greater experience of affairs, and
of a British control which, since the outbreak of war, had become even
more burdensome, demanding and meticulous. Even the most Anglo-
phil sultan, placed in Fu'ad's position, would sooner or later, in
attempting to consolidate his position, have been bound to create
difficulties for Britain. And in fact, soon after his accession signs
began to multiply that he was not the complaisant puppet which
some had expected him to be. Indications were not wanting that
Fu'ad was determined to aggrandise himself at the expense both of
his ministers and of the British. His ofuine nocturne was one straw
in the wind; but there were others. When Edwin Montagu, the
secretary of state for India, visited Egypt in the autumn of rgt7,
Fu'ad received him and (as he informed Wingate) told Montagu that
'he hoped that Egypt would be granted full autonomy in due course'.a8
'The etiquette of a reigning sovereign or something like it', wrote Sir
Milne Cheetham in August r9r8, 'has been introduced at Abdine and
on one occasion the sultan withdrew without bidding farewell to the
high commissioner at all.' The general tone of his reception of British
officials and residents had aroused 'outspoken discontent', and it was
clear, Cheetham also remarked that Fu'ad wanted to make himself
'the active head of society' in Egypt.2{ Fu'ad also began to profess
dissatisfaction with his chief minister, Husain Rushdi, and other
ministers complained vehemently to the residency about him. Adli
was quite contemptuous of the sultan; Tharwat complained of the
interference of the palace in cases before the religious courts in which
Amin Yalrya, a member otthe oficine was involved; Sirri, the minister
of works, also complained that credits for the decoration of Abdine
palace were being exceeded on Fu'ad's instructions.s6

89
 THE CHATHAM HOUSE VERSION
At the same time as he reported these difficulties, Wingate also
took the view that Fu'ad's relations with Husain Rushdi were on the
mend, but he warned that:
. . . judging from the tendencies the sultan is now exhibiting, I should be
rather a{raid that, with a return to more normal times, he might be
tempted to encourage the opposition of a more or less Nationalist charac-
ter with which the government in all probability v'ill have to deal. A
development of this kind would be a repetition of the situation in r9r4,
when Abbas Hilmy supported any elements in the Chamber which were
opposed to the government, The present sultan [he rvent on] is little
known in Egypt. Hc was brought up abroad, and when residing here has
chiefly lived among foreigners. It is commonly believed that we put him
in as a weak man who would serve our own ends, Hitherto he has failed t<r
gain the public esteem which Hussein Kamel enjoyed, and he may be
likely therefore to take a iine which would brirrg him popularity and the
position which he lacks.2t

As the war was coming to a close, less than a month before Zaghlul's
fateful interview, Fu'ad again reiterated to Wingate his dissatisfac-
tion with his ministers, and gave expression to his desire for Home
Rule for Egypt on the lines of President Wilson's Fourteen points.'?
Wingate had already warned that Fu'ad's thoughts were running in
this direction. In his dispatch of 3r August r9r8 he had reported that
Haines, the adviser to the Ministry of the Interior, visiting the sultan,
had remarked that there was no need - as had once seemed the case -
for British commandants of provincial police: 'The sultan interrupted
him at this point and said that such questions were for his ministers,
and did not concern an adviser. It is of course', added Wingate, 'one
of the theories of advanced Nationalism that British advisers should
have purely technical functions, and not take any part in administra-
tion in its executive aspects.'8t Now, exactly a week before Zaghlul's
interview, Fu'ad spoke to Wingate of his desire for a purely Egyptian
Ministry, for national assembly, and for a constitutional monarchy.ze
a
As the sequel was to show, it is most unlikely that Fu'ad, in speaking
thus to Wingate, was moved by a sincere desire to diminish the
legally unlimited prerogatives of the sultanate. His history indicates
that he was, as Austen Chamberlain described him, 'sly, scheming,
cormpt and autocratic'.80 What is more likely, then, is that he saw in
Zaghlul's move, which he no doubt hoped to control and use for his
own ends, a means of increasing his stature and power, just as Abbas
Hilmi had done in the case of Mustafa Kamil and his Nationalist
9o
 SA.D ZAGHLUL AND THE BRITISH
Party before he broke with them in r9o4. In this autocrat invoking
the Fourteen Points, then, we see the first partner in the prolonged
game of chess which lasted from r9r9 to tgzz,when Allenby, extorting
his famous Declaration from a reluctant government in London,
began the long, painful and humiliating liquidation of the British
position in Egypt, which ended at last in the unlikely events of
November 1956.
Zaghlul was acting in concert not only with Fu'ad but with his
ministers as well. These ministers, the principal of whom were Husain
Rushdi and Adli Yakan, had been in ofrce since the outbreak of war.
They had shown loyalty to the occupying power, had acquiesced in
the deposition of Abbas and the declaration of the Protectorate, and
had done their best to comply with the needs of the military. Now
that Fu'ad was on the throne, that peace was about to return, they
found their situation extremely weakened. They could be attacked
for subservience to the British, for disloyalty to the Ottoman
suzerain of Eg:ypt and to the ex-khedive, and they had to take action
to protect themselves and to parry the attacks that were bound to
come. So that, even if they had had no desire to claim independence,
once they found Zaghlul and Fu'ad engaging on such a tactic, willy-
nilly they had to follow suit and associate themselves with their
demands. But in :rny case they themselves had cause for complaint
and a desire to change the modalities of the Protectorate as these had
developed in the years from r9r4 to r9r8.
In r9r4 Kitchener w.xi consul general. When war broke out he was
on leave in London, and was persuaded to remain there and become
secretary of state for war during the hostilities. But the war was not
thought likely to last very long, and Kitchener did not want to
abandon his Egyptian post. This was why Sir Henry McMahon, an
Indian civilian, who had just retired from the position of political
secretary to the Government of India, was appointed high com-
missioner-as the British representative came to be known after the
declaration of the Protectorate - as a stopgap measure, to keep the
post open for Kitchener. McMahon had spent all his ofrcial life in
British India and had no intimate knowledge of Egypt. Now Egypt
was not India. India was ruled by a tightly-knit, compact civil
service, in which there was an unbroken chain of command from the
district officer in his remove province to the central seat of authority
in Delhi;Egypt under British occupation, on the other hand, was a
much more complicated and delicate mechanism to operate. While
9r
 THE CHATHAM HOUSE VERSION
there could oI course be no question that the last word lay with the
British representative, yet his authority was not and could not be
exercised directly. There was the khedive, who was the legal ruler of
the country, there were his ministers who were supposed to control
and direct the native officials; these ministers were flanked by British
advisers at the centre, and their subordinates by British inspectors
in the provinces; it was by means of this peculiar dyarchy that the
views and desires of the occupying power were suPposed to be trans-
mitted and enforced. This meant that the British representative had
to manage and humour khedive, ministers and other ofrcial Persons,
and that his position precluded him from that direct exercise of
authority which, in an hierarchical civil service such as that of British
India, was customary as between superior and subordinate. The
declaration of the protectorate, the coming of McMahon, the con-
centration of large bodies of British and Allied troops in Egypt -
events all of them precipitated by the outbreak of war - could not but
exercise the greatest influence on the modes of British control of
Egypt; and this in turn could not but greatly disturb the Egyptian
ministers and official classes, accustomed as they had been to the
political and administrative traditions which had grown up from
r88z to r9r4. In a private note written in October r9r9 Sir Reginald
Wingate recorded an interview he had with Sultan Husain Kamil,
while McMahon was still high commissioner, in which the sultan
bitterly complained of the increased power of the British ofrcials
and stated that Egypt was then being ruled by a camorra,* of which
they were the head. From that same note it appears that the sultan
complained to Lord Hardinge, who was passing through Eg1ryt, and
that his complaint, coinciding with Kitchener's death, resulted in Sir
Reginald Wingate, then governor-general of the Sudan, being
appointed to replace McMahon.sl Writing to Hardinge shortly after
assuming his new office, Wingate described how Lord Edward Cecil,
the financial adviser, had been given great authority by McMahon,
and how everybody, British and Egyptian, was looking up to him
for advancement and promotion.sz McMahon, it would seem, used
Cecil as a kind of prime minister.
The chief minister, Husain Rushdi, became particularly restless.
At the end of r9r7, when Fu'ad proposed to appoint Zaghlul as a
minister, Wingate was somewhat concerned to see Husain Rushdi
put into question the protectorate and its working. In conversation
r A Neapolitan secret society.

92
 SA.D ZAGHLUL AND THE BRITISH
with Brunyate he declared that he wanted British supervision Iimited
to finance, foreign relations, justice and the army, and that the
advisers should be subordinated to their ministers. He went so far as
to suggest that ministers should not exercise power without obtain-
ing parliamentary support. But when Wingate taxed him with
harbouring such views, Rushdi hastily disclaimed any immediate
intention of introducing a new political programme and dismissed
his conversation with Brunyate as entirely private and of no official
significance. Wingate was inclined not to attach too much im-
portance to Rushdi's outburst, thinking that it was merely an attempt
to test the ground, but he warned Hardinge that 'we must expect a
very frank exposi of national aspirations when the war is over'.ss
But Wingate must have misjudged Rushdi's tenacity of views, or
the strength of the pressures which led him to demand a recon-
sideration of the protectorate. The lengths to which he was ready to
go - or to which he was driven - may be seen from the way in which he
dealt with some proposals of Brunyate's dealing with the future of
the Capitulations and with other constitutional issues. In this con-
fidential document, which had been prepared at the request of the
Egyptian ministers and was no more than a draft put up for dis-
cussion, Brunyate proposed the creation of a senate where the forergn
communities of Egypt would be substantially represented and which
would have large powers over legislation. Husain Rushdi took - or
professed to take - violent exception to this proposal. He wrote a
vehement rejoinder which, together with Brunyate's memorandum,
was distributed in the provinces and given very wide publicity.sr
Rushdi's behaviour is simple to understand. Once the protectorate
was called into question, Rushdi could not afford, out of mere self-
protection, to seem indifferent or tepid in such a cause, if only because
he realised how easy it was for his rivals to brand him as a traitor for
having acquiesced in the policies of the British and collaborated with
them for so many years.86 And as the armistice approached it began
to be increasingly clear that various people, each with his own par-
ticular motive, were thinking of requesting a reconsideration of the
protectorate. Wingate, as has been seen, warned London that some
such move could be expected from Fu'ad and from his chief minister.
Who, in fact, thought of a specific move is not entirely clear. Prince
'Umar Tusun, a grandson of Sa'id Pasha, the third of Muhammad
Ali's sons to succeed him as vali of Egypt, claims that the idea of
challenging the protectorate occurred to him after the publication of

93
 THE CHATHAM HOUSE VERSION
President Wilson's Fourteen Points in January r9r8. He consulted
Muharnmad Sa'id who broached the matter to Zaghlul early in
October r9r8; and the latter promised to discuss it with his friends.
Later in October, 'Umar Tusun himself met Zaghlul who told him
that f,roo,ooo were required to organise a campaign against the
protectorate. Zaghlul and the prince agreed to meet and discuss the
matter further. 'Umar Tusun then happened to be in Cairo - on rr
November - when he heard of the forthcoming interview with Wingate ;
he tried to take part in the movement, but the sultan objected to his
participation.s0 And it is a fact that Fu'ad, unsure as he was of his
position and afraid of being superseded either by Abbas Hilmi or by
some other member of his family, did sharply forbid 'Umar Tusun
from taking any further part in the movement against the protec-
torate.s? He also took positive steps himself - apart, that is, from
what he may have inspired his coadjutors in the oficine noctarne to
do - to show obliquely yet unmistakably that he did not like the
protectorate. He sent President Wilson a telegram praising him for
his Fourteen Points, but the telegram was sent not through the U.S.
consul general but through the telegraph company; he assured his
EgSptian visitors that he was in favour of convoking the Legislative
Assembly;ss he is said to have interested himself very much in the
collection oI money for the use of Zaghlul's delegation which at
Alexandria was organised by his man, Amin Yahia; he is also said to
have issued a circular 'which was distributed in all towns and con-
tained many open and concealed ambiguities together with a notifl-
cation of his wish to be associated with the people in all their desires
and to share their aspirations'.8e If 'Umar Tusun and F'u'ad seem to
have had a trand in the events which led to Zaghlul's visit to Wingate,
so most probably did Rushdi and Adli. Abd al-Aziz Fahmi, who
accompanied Zaghlul on the visit to Wingate, stated later that
Zaghlul was quite averse to visiting Wingate and that he only changed
his mind when Rushdi and 'Adli told him that they and the sultan
were agreed on a journey to Europe to demand the rights of Egypt
and that it was advisable to have by their side 'a part of the nation
on whom we may rely for the defence of its rights, so that we may
obtain something from the English'.ro
Thus it came about that Zaghlul, free of official responsibilities,
was pushed forward by Fu'ad and Rushdi. Given this opportunity,
Zaghlul was able to set the pace and his backers, whether they liked
it or not, had to endorse his demands. As for themselves, it is doubtful
94
 SA.D ZAGHLUL AND THE BRITISH
whether they really wanted full independence, or whether - as is
more likely - they would have been content with a definition of the
protectorate which would circumscribe the authority of the British
ofrcids and allow the Egyptians more elbow room. In an eloquent
note which he wrote for Wingate in December r9r8, Husain Rushdi
declared that the protectorate was a label which could be used to
designate either outright annexation or a reconciliation of British
and Egyrytian interests. He wanted to know which it was to be; this
was the purpose of the talks which they wanted to hold with the
British government in London, and he disclaimed any desire to make
the Egyptian question international or to seek to present it before the
Peace Conference.{l If this was Husain Rushdi's view, the views of
the other Egyptians concerned in Zaghlul's move of November were,
at the outset, hardly more clear-cut. Fu'ad, it is safe to say, had
started something, and was waiting to see how the cat would jrmp;
he had been careful not to commit himself categorically, and at the
worst had only to disclaim responsibility and to say that it was the
fault of his ministers, of Zaghlul, of public opinion . . . ; if, however, the
British were ready to parley, he would put himself at the head of the
movement and so manoeuwe as to obtain the greatest benefits for
himself and his house. If such was the calculation he was to be sorely
disappointed, to find that in Zaghlul he had an old, wily partner,
and that the forces he helped to unleash were no longer under his
control. As for Zaghlul and his unofficial associates, they also seem to
have ventured hopefully, without really knowing the true extent of
their demands or what they would consider a satisfactory outcome.
This was the attitude of Ahmad Lutfi al-Sayyid, who was a member
of Zaghlul's group which soon came to be known as the lVafd. He
told Muhammad Husain Haikal at the time that the plan, as he saw
it, was for Zaghlul's Wa.fd, to proceed to Paris and lay the Egyptian
demands before the Peace Conference; if they succeeded in this, well
and good; if not, then Husain Rushdi and 'Adli Yakan would go to
London on their own and endeavour to make precise the conditions
of the protectorate and to set up a true constitutional gbvernment for
the country.'2 Whether these were the precise views of Zaghlul
himself we do not know, but his subsequent behaviour would indi-
cate that he was a man ready to extract the maximum benefit from
any favourable oPPortunitY.
The answer by the British government to Zaghlul's move came
quickly. It was a categorical refusal. No Egyptian leader, official or
95
 THE CHATHAM HOUSE VERSION
unofficial, was to move out of Eg1ryt, to go either to Paris or London;
further, Wingate was rebuked for allowing himself to be trapped into
receiving Zaghlul's delegation and giving them scope for making
these demands. In a telegram of z December r9r8 Wingate was told
that his reception of Zaghlul and his coleagues, which was being
exploited by them in order to show that their movement was lawful,
'was unfortunate'. The rebuke was less than just, for, as has been
seen, Wingate had given plenty of warning of Fu'ad's and Husain
Rushdi's state of mind, and he could hardly have refused, unless he
were to behave like an oriental despot, to receive three men as
prominent in Egyptian society as Zaghlul and his two friends; it was,
further, Cromer's policy, and a tradition which he bequeathed to his
successors of whom Wingate was one of the worthiest, that the
British representative in Egypt was accessible to all classes of men
and ready to look into and redress the grievances of the most in-
sigrrificant of Egyptians. When Wingate subsequently protested
against the reprimand which the Foreign Office had administered, he
was told that 'what struck the authorities here as somewhat unac-
countable was the fact that Saad Zaghlul and his friends should have
(at least so it appears) concerted their action with the sultan and
probably Rushdi Pasha if not others of the ministers and then have
come to you as a deputation without your having any previous
knowledge of the objects and aims of their visit.'.E There is little
substance in this complaint, which reflects, rather, the prejudice
rvhich, as will be seen, ministers and high officials in London enter-
tained against Wingate. For even if Wingate had known exactly
beforehand what demands Zaghlul and his friends were going to
make,ra and had refused to receive them, this would hardly have put
an end to a movement which had the sultan's and the chief minister's
support. For the same reason, the refusal of Zaghlul's request was
misconceived. If Zaghlul, the ministers and the sultan were acting in
concert, and if they maintained a united front, what then would the
British government do? For, then, it would come to a trial of strength ;
were theyprepared for it? There is no indication that the consequences
of refusal were seriously considered. For not only was Zaghlul himself
refused permission to go to Europe, the ministers were also forbidden
to do so. It might be that had they been allowed to go to London, as
Wingate himself urged that they should, they would have been adroit
enough to take the initiative away from Zagl;.lul, and thus enable the
British government to break the united front which Zaghlul, the
96
 SA.D ZAGHLUL AND THE BRITISH
ministers and the sultan maintained, each for his own particuiar ends.
But it is doubtful whether they would have been adroit enough, or
daring enough, to proceed on their own, while knowing that the sultan
would be obscurely manoeuvring behind their backs and Za6hlul
ready to denounce any settlement in which he did not have a part.
In the event, faced with the British refusal, they resigned, and were
soon declaring that they would not go to London without Zaghlul,
obviously fearing that if they left him in Egypt he would be in a strong
position to outbid them.as
The ministers were prevailed upon to hold back their resignation
for the time being, but Wingate found himself in a difficult position,
between an equivocating sultan alternately saytng that Zaghlul and
his friends were justified in their demands, and his ministers right to
resign, and then again saying that the ministers were indispensable
and should be prevailed upon to stay in office, and that he himself had
no sympathy with Zaghlul but dare not disown him; and ministers,
in part genuinely ofiended by London's behaviour and, again in
part, fearful of seeming less extreme than Zaghlul.4o AU this while,
Zaghlul, now in the limelight, together with his committee, was
organising opposition to the occupying power. The text of a petition
asking that Zaghlul and his delegation be allowed to travel to Europe
to present the Egyptian case was spread throughout the land and
signatures collected for it. The provincial authorities, acting on the
instructions of the Ministry of the Interior, attempted to confiscate
these petitions. Zaghlul, in what may have been a concerted move,{?
protested to Husain Rushdi against the confiscations. What followed
throws light not only on the course of the so-called Egyptian revolu-
tion of r9r9 but on the quality of the British administration of Egypt
in those years. Husain Rushdi went with the protest to the adviser of
the ministry of the interior and asked him what reply should be made.
The adviser was then Mr Haines, who had been an inspector and then
a chief collector of taxes; he had been made adviser to the interior by
McMahon on Lord Edward Cecil's advice. 'In this post', writes Lord
Lloyd, 'he displayed little of his former zeal or competence, and
refused to listen to any sort of criticism or advice, thus cutting off the
high commissioner from his chief source of information.'l8 Mr Haines,
as he explained to Wingate, now told Husain Rushdi to answer
Zagh}ul by saying that the petitions were being confiscated by the
order of the adviser of the ministry of the interior.ao Husain Rushdi
replied in this sense: the letter was made public and it was plain for
97
 THE CHATHAM HOUSE VERSION
all to see that the sultan's ministers had no part or lot in putting
down Zaghlul's movement, that it was purely the doing of the British.
But this dissociation of the Egyptian ministers from their British
advisers, facilitated by Haines's extraordinary move, was not the
only sign by which the ministers conveyed their approval of Zaghlul's
movement. There is evidence to show that they took positive steps
to facilitate his work. The petition had been sent, writes Muhammad
Husain Haikal, to lawyers, doctors, engineers and other professional
people: 'for these, it was not difficult to sigrr the petitions, since their
culture and their appreciation of the meaning of independence were
enough to make them eager to sigrr. But copies of the petition had
also been sent to local elected bodies, such as provincial councils,
and to 'omd,as and notables, and lo and behold, thousands and
hundreds of thousands of these signatures began to come in from
every side; this is because Rushdi Pasha's Ministry encouraged the
mudits and the ma'mnrs, and made them encourage people who were
afraid of the power of government, to sign the petitions.'Eo Ahmad
Shafiq Pasha, in}abSwraey oJ Egy.ftian Politics,also mentions that the
government exerted its influence on behalf of Zaghlul's movement
and confirms his argument by a speech which Husain Rushdi made
a few years after these events recounting the help which he gave to the
Wafil while in office.61 It was not only the ministers but the palace
as well which exerted its influence in the same direction; so Abd
al-Khdiq Tharwat - one of Husain Rushdi's fellow ministers who, it
seems had not been consulted about the resignationsz - told Brunyate,
adding that false rumours were being spread by the palace staff.68
A curious effect of these tactics emerges from the storytold in a note
by Sir Ronald Graham on unrest in Egypt to the effect that an
influential provincial notable loyal to the British connection told a
British inspector that he had subscribed {ro,ooo to Zaghlul's move-
ment because he understood it had the support of the British, and
that he gladly cancelled his subscription when he learned to the
contrary.rs Later, in the disturbances which followed the banish-
ment of Zaghlul and his friends, some provincial officials took the
part of the rioters, others remained passive, the police in some places
showed indiscipline, and in at least one recorded instance Eg:yptian
troops incited the mob to destruction.sE It would seem, then, that the
Eg:yptian revolution of r9r9 was, at least, in instigation and at the
beginning, a revolution directed from above.
While efiervescence was mounting in the country, Wingate was
98
 SA.D ZAGHLUL AND THE BRITISH
endeavouring to make the British government change its policy and
make some less categoricdly negative reply to the Eg:yptian ministers.
The government went so far as to say that they would, some time,
discuss the issue with Husain Rushdi and his colleagues, but that
Zaghlul was on no account to move out of Egypt. Early in the crisis,
however, Husain Rushdi and 'Adli had declared that they would not
go without Zaghlul. Their reason was precisely what it had been
when they discreetly joined Zaghlul in objecting to the protectorate,
namely self-protection. fmmediately after Zaghlul's visit to Win-
gate, Rushdi himself saw the high commissioner, declared that he
had lnown of Zaghlul's scheme, and that he and his friends should be
given a hearing in London 'as in the event of their request being
refused, charge of inadequate representation of Egyptian questions
could not then be brought against responsible Egyptian ministers
as might be the case if only the latter went to London'.Ec They con-
tinued to argue that it was necessary both for them and Zaghlul to
go to London, so that the latter might be discredited by his failure to
gain a hearing from the British government - than which, they told
Wingate, they wished nothing better.6?
Wingate was summoned for consultations to London, arriving
there at the end of January r9r9. He was left to cool his heels for a
fortnight or so, before Curzon, who was in charge of the Foreigrt
Office while Balfour was at the Peace Conference in Paris, found the
time to see him. Wingate then argued that it would be politic to
allow both the ministers and Zaghlul to come and present their
grievances in London; 'otherwise it was difrcult to form an Egyptian
government, and whatever government was formed would be very
weak'. 'The departmental view on the other hand', said a memoran-
dum of zo February r9r9, which Curzon sent to Balfour in Paris, 'is
that the Nationalist leaders, who have placed themselves at the head
of a disloyal movement to expel the British from Eg11pt, have no
claim to be allowed to come here, and that to accede to the demands
of the ministers on this head would only be regarded throughout
Egypt as a sign of weakness.' Further, Eglptian ministers should
not be allowed to dictate the terms on which they would come to
London; it was quite possible to carryr on in Cairo without an
Egyptian ministry, and contrary to what Wingate had represented,
his views were by no means universally shared in Egypt. Balfour
agreed with the departmental view and a telegram, the draft of which
was amended and approved by him, was accordingly sent to Cheetham

99
 THE CHATHAM HOUSE VERSION
on 26 February. This telegram, which Balfour's amendment made
even more stringent and categorical, refused permission to any
Egyptian to leave Egypt for any reason whatever.sE Thereupon
Rushdi and'Adli made their resignation public and final, on r March
t9r9.
One argument which the Foreign Office adduced in favour of its
own views was a telegram from Cheetham of 3 February previous in
which he stated that, in spite of the ministerial crisis, administration
had continued without serious inconvenience during the past fort-
night. Sir Milne Cheetham had been counsellor at the residency since
r9rr. His dispatches show him to have been a competent if colourless
subordinate; Gertrude Bell, who met him in Egypt in r9r9, described
him as a typical Foreign Office man of the bloodless tyrye.60 Events
were now to show that the responsibility which he had to shoulder
during Wingate's absence was quite beyond him. He began by being
over-confident, allowed himself to be manoeuwed by Fu'ad into
taking a rash action, and when its results proved untoward he gave
way to panic. He started by sending reports which represented
Zaghhrl and his ministerial s5rmpathisers as having lost popularity
and the country as quiet and peaceful. There seems no reason, he
said in a telegrcm of z4 February, why Zaghlul's movement should
affect the decision of the British government on constitutional
questions and the proper form to be given to the protectorate.eo
A few days later, however, Zaghlul took an action which had the
most far-reaching repercussions. When the ministers' resignation
was made known, he visited the royal palace at the head of a delega-
tion and delivered a minatory letter for the Sultan to deter him from
trying to form another Ministry:
We know [the letter said] that Your Highness may have been com-
pelled by family reasons to accept the throne, but the nation, on the
other hand, believes that your acceptance of the throne during the
temporary and illegal protectorate - out of regard for those family cir-
cumstances - should not turn Your Highness away from working for the
independence of Your country. People, therefore, have wondered how
Your Highness's counsellors did not pay regard to the nation in this
difrcult period. The nation asks that Your Highness be the first one to
come to its help in attaining independence, however much this might
cost Your Highness. How can it have escaped Your Highness's counsel-
lors that the terms of Rushdi Pasha's resignation do not allow any honour-
able and patriotic Egyptian to take his place? Ifow can it have escaped
them that a Ministry formed on a programme contrary to the will of the
roo
 SA.D ZAGHLUL AND THE BRITISH
people is doomed to failure? We do uot advise our Lord falsely when we
beg Him to acquaint Himself with the opinion of His nation before
taking a final decision concerniog the present ministry. To stand between
the nation and its demands is a responsibility which the counsellors of our
Lord have not scrutinised with the requisite precision.cr
The erstwhile member of the oficine noctulne was giving notice to
his coadjutor that he could not so easily wriggle out of his schemes,
that even if he were tempted to give in to the obstinacy of the
British, Zag;t:JuJ would not allow it. Cromer's girondist was turning
jacobin.
Fu'ad refused to see the delegation which brought this letter and
immediately appealed to Cheetham - 'for protection from further
insults'. In a telegram of 6 March the latter stated that he had con-
sulted the principal advisers who agreed with him that the Proper
course was to intern Zaghlul and his followers outside Egypt:'I
recommend', Cheetham concluded, 'his immediate arrest and de-
portation, and for the sake of the sultan's prestige, which is a political
interest to us, I would beg for an early decision.' And a PromPt de-
cision he did get. Entirely guided by Cheetham's estimate of the
situation during the past month, the Foreign Office on 7 March
authorised the deportation of Zaghlul and three of his companions
who, on 9 March, were arrested and sent to Malta. Reporting the
deportation, Sir Milne Cheetham opined that 'this action, for which
sultan has expressed his warm thanks, will be sufrcient for the
moment'.02
Fu'ad's gratitude was very short-lived. At the end of March, in
answer to a Parliamentary question, the government stated that His
Highness had appealed to the acting high commissioner for protection
against further insults and intimidations, hence the deportations. By
then, extensive disorders had broken out in Egypt, Allenby had super-
seded Wingate, and Zaghlul and his friends were being widely
acclaimed as liberators and martyrs. The sultan therefore rejected
with indignation this slur on his patriotism: What he had done was
merely to show the petition of 5 March to Cheetham, and it was the
Iatter and not himself who had recommended action. His Highness
therefore demanded that it should be made clear that it was the
British government who, acting on the advice of their representative,
were wholly responsible for the deportations. Curzon was not willing
to concede this without further discussion; but with his characteristic
impatience Allenby cut short the debate and issued a statement in
IOI
 THE CHATHAM HOUSE VERSION
Cairo magnanimously accepting full responsibility on behalf of the
British governmentl 'I have done this in agreement with sultan', he
told Curzon in a telegram of r April.88
Cheetham's coup de lorce, then, had immediately been followed by
widespread and serious disorders: mobs rioting in Cairo, Alexandria
and the principal provincial cities, telegraph wires cut, rail tracks
destroyed, Englishmen killed. To judge by his dispatches imme-
diately previous to the rising, Cheetham did not have the slightest
suspicion of impending trouble. His deportation of Zaghlul and his
companions makes sense only on the assumption that here was a
handful of mere agitators who, once out of the way, would be de-
prived of any power for mischief. And yet Cheetham must have
known that Zaghlul was acting in concert with the sultan and the
Ministry, that ofrcials and notables taking their cue from Cairo had,
ever since the previous November, been spreading petitions and
propaganda in favour of Zaghlul's delegation. Deporting Zaghlul and
his friends was not, then, to strike at the basis of the agitation. To
have done it furthermore at Fu'ad's instance showed a dangerous
readiness to be bamboozled.
Cheetham also must have known - or, if he did not, he ought to
have known - that after four years of war, conditions in Egypt were
such as to make the country dangerously responsive to the agitations.
Those conditions were, either directly or indirectly, largely the out-
come of Egypt being made to supply the demands imposed on it by
the British army which naturally was concerned first and foremost to
fight the war against the Ottomans. When Egypt had been declared
a protectorate the British government solemnly stated that 'Egypt
would not have to bear any burdens by reason of the war'. This was
presumably done in the expectation of a short war; but as the conflict
lengthened and extended, the army began to press for the supply of
labour and animals. An Egyptian labour corps was set up, entry into
which was supposed to be voluntary. But as the demands of the
army increased, though the voluntary principle was not overtly
abandoned, yet pressures began to be applied through the Egyptian
administration and ultimately through the village 'ornd,as to obtain
more recruits. These pressures, haphazardly, capriciously, corruptly
and abusively applied, gave a bad name to British ruIe among the
fellak. For was this not a return to the corude, the ending of which
had been one eloquent vindication of British rule? How little con-
sonant with British methods these practices were was realised at the
to2
 SA.D ZAGHLUL AND THE BRITISH
time. In a dispatch of 15 September r9r8 Wingate admitted that
such methods were 'not in agreement with the general sentiment and
character of our occupation in Egypt' and that they 'obviously'
opened the door to abuses which British officials could not possibly
prevent.6{ The'omdas were given this large and discretionary power
not only in respect of labour recruitment but also in respect of
requisition both of animals and of produce, and there is little doubt
that they used these large and arbitrary powers to enrich themselves,
to settle old scores and generally to tyrannise over the villages.c6 If
there is a ground for blaming Wingate for the events of March, then
it is this, that he did not resist with sufrcient vigour the insatiable
demands of Allenby and of the War Office for manpower and supplies,
or at any rate did not organise recruitment and requisition in a way
which was not open to abuse.
The war also led the authorities drastically to restrict the acreage
of cotton - the most lucrative crop - so that more foodstuffs could
be grown. Imports also became scarce, prices rose and an inflation
set in which bore heavily on the poorer classes in the cities who, in
the words of a memorandum by the financial secretaryof the Eglrytian
ministry of finance, 'have been enabled to cope with the higher cost
of living only by the exercise of severe economy and by a reduction
in the consumption of necessaries to an extent incompatible with the
maintenance of an adequate standard of existence'.c0
The very war which produced these strains in Eglryt at the same
time weakened British control over the administration. British
officials found their energies absorbed by the over-riding demands of
the war, their numbers were depleted, and the high standard of re-
cruitment, hitherto customary, could no longer be maintained. The
resulting administrative slackness did not redound to the credit of
the British name. This slackness also became apparent at atime when
the country was fllled with a vast military base through which moved
large conscript proletarian armies who knew nothing about the rules
of behaviour current in a Muslim society. Their conduct frequently
scandalised the population and contrasted strongly with the decorum
which Egyptians had been accustomed to associate with English-
men, whom they now began to see with new, much less respectful
eyes. One of the most perceptive witnesses to appear before the
Milner Mission, an inspector of the interior, Mr A. Wellesley, drew
attention to the decline in respect for the British in Eg5ryt. He
attributed it both to the lower standards - and the lower class - of
r03
 THE CIIATHAM HOUSE VERSION
the British ofrcial appointed to Eg1ryt in late years, and to the influx
of large numbers of soldiers whose manners were, at best, indifferent.
'The sort of English official who did harm', he said, 'was the ofrcial
of what he might call the N.C.O. class. Of course the war had done
incalculable damage to the prestige of British officials. The Egyptians
now had experience of ill-mannered and disorderly British oftcers
whom they saw associating with ofrcials and they were not apt to
difierentiate.'c7
Beyond these conditions there were others, perhaps less tangible,
which served further to complicate and aggravate the disturbance
brought about by the war. The very peace and prosperity which
accompanied the British occupation had perhaps unleashed the
Malthusian devil in Egypt. The population was constantly on the
increase, and it pressed ever more relentlessly on the limited resources
of an essentially agrarian economy which, moreover, was at the mercy
of world economic conditions. It may be, therefore, that even without
the war and the strains it occasioned, Egypt was becoming gradually
more difficult to manage and govern. This general increase in popula-
tion necessarily also led to an increase in the size of the cities, which
- in a process accelerated by the war - were becoming gradually
swollen with migrants from the countryside. These constituted a
miserable and volatile mass, easy to rouse and difrcult to control.
The disturbances of March r9r9 saw their ominous emergence on to
the scene of Egyptian politics. In Cairo, in Alexandria, in the tightly
packed towns of the Delta they rioted, killing and looting, providing
a vivid illustration of the problem of government which the increase
in population was creating.
Eg;rpt then was going through a serious malaise which the sultan,
his ministers and Zaghlul had begun to exploit. Cheetham, as has
been said, seemed to have no inkling of this malaise, of its character,
or of the way in which it was being manipulated. Having displayed
an excess of confidence before Zaghlul was deported, after a few days
of disorder he went to the other extreme and assumed that the
disorders were the expression of a movement which, as he put it in a
telegram of 17 March, was 'national in the full sense of the word', a
movement which had 'apparently the sympathy of all classes and
creeds, including the Copts'.oa In speaking thus, Cheetham showed a
readiness to accept at face value the slogans of the Cairo politicians.
He assumed, uncritically, that the city mob and the peasants on the
rampage were moved not by specific distempers and concrete - albeit
ro4
 SA.D ZAGHLUL AND THE BRITISH
obscure - discontents, but by the abstract clich6s the use of which
the official classes had so readily learnt from Europe.
Cheetham had deported Za6hlul on 9 March. Disorders had almost
immediately broken out in the cities and villages of the Delta, and in
Uppe. Egypt. By 15 March the acting high commissioner had com-
pletely lost his nerve. On that day he sent two telegrams. In the first,
marked 'very urgent', he reported that the disorders were continuing
and went on to make a suggestion which clearly demonstrated his
utter lack of judgment: '. .. would it', he asked, 'represent any in-
convenience from wider political point of view if so-called Egyptian
patriots were to visit France and England, whether or not any of
them were granted ofrcial recognition in London?'oe The second
telegram, also 'very urgent', announced that disorders were con-
tinuing, that a 'grave situation' was developing and that General
Watson, commanding the troops in Egypt, agreed that there was a
danger of an 'outbreak of fanaticism'. This danger made it necessary
'to discover some ground for reconciliation' and he might want to
recommend 'a concession to native feeling'. He therefore wanted an
'urgent' answer to his previous telegram.To Two days later, he again
insisted that 'a concession' was necessary.?r In his panic, Cheetham
went further. He tried to enlist the help of the United States in per-
suading his government to authorise a concession. He sent for the
American consul general on r8 March and told him that 'at no time
since the Araby rebellion in r88z has the state of affairs been so
critical'. He was, he said, unable to obtain instructions from London
and'intimated', so the consul general reported in a telegram, 'that he
desired me to report the serious conditions to my government in the
hope that it would exert promptly some influence over his own
government and thus make them appreciate the gravity of the situa-
tion'. Cheetham also wanted to enlist the help of the consul general in
restoring order in Egylt. In a later addition to his telegram, the
consul general reported that Cheetham had called him to the
residency'to tell me that the situation is getting beyond control and
to ask if I will be prepared to help in the matter if the worst comes'.
Curzon at the Foreign Office did not receive Cheetham's suggestions
well. To allow the Eglrytians to come to London after these distur-
bances, he sensibly told Cheetham in a telegram of 17 March'would
make it appear that we were yielding to force when persuasion has
failed of its effect.'?8 Curzon also informed Balfour in Paris that he
was opposed to Cheetham's proposals, adding that he felt the acting
r05
 THE CHATHAM HOUSE VERSION
high commissioner was not fully able to cope with the situation.?'
Balfour's advisers in Paris agreed with Curzon. Vansittart - who
knew Egypt, having served in the residency before the war - minuted
Cheetham's telegram of 15 March advising concessions: 'Having
originally refused, it is now more difficult for us to give way without
loss of prestige,'?5
In his telegram of 16 March, informing Bdfour of his reaction to
Cheetham's suggestions, Curzon also proposed letting Cairo know that
the British government was prepared to receive the Eglrytian ministers
- but not Zaghlul and his friends - in London; this, observed Van-
sittart in a minute, might have met the situation a few months before;
whether it would now was doubtful; but it was at any rate worth
tryrng.?c
Such, it would seem, was the tenor of the advice which Balfour
received. This, at any rate, is what the available paPers show. The
action which Balfour now took thus becomes quite inexplicable.
Answering Curzon on 18 March, he began by saying that the restora-
tion of order and the formation of a competent government must be
immediately and unconditionally carried through. Once this was
done, the British government would be ready to discuss with the
Egyptian ministers the grievances of Eg]?t. Then Bdfour added the
following: 'If they [i.e. the Eglrytian ministers] think their task
would be better performed if they were accompanied or immediately
followed by persons qualified to represent the Nationalist case even
in its extreme form, I can see no objection.' This telegram, drafted
in Balfour's own hand, seems to concede what Husain Rushdi had
demanded and what the British government had hitherto resisted,
namely that in any negotiations with the British government, Zaghlul
should accompany the ministers. Why did Balfour propose making
such a vital concession? Curzon, he knew, advised against it, and so
did Vansittart. Could he have been impressed by one of Cheetham's
telegrams of 15 March in which he stated that General Watson also
believed a concession necessary? All that can be said is that this par-
ticular telegram adjoins, in the file, Balfour's draft of the telegram
of 18 March.T? The matter becomes all the more puzzling, when
another telegram of Balfour's, which immediately followed, is con-
sidered. Sent as an urgent, private and personal telegram, it informed
Curzon that the preceding telegram contained 'the best personal
advice I can give in the circumstances, but I am fully conscious that
I have but an incomplete knowledge of the Eglrytian situation, and f
ro6
 SA.D ZAGHLUL AND THE BRITISH
have not with me in Paris any member of my staff who is fully equip-
ped to assist me.'?8 If this was the case, why did Balfour feel it
incumbent on him to give these instructions? Was it that, as Curzon
complained, behind his charm and intellectual distinction there lay
ignorance, indifierence and levity, that he never studied his papers,
or knew the facts or looked ahead, that 'he trusted to his unequalled
powers of improvisation to take him through any trouble and enable
him to leap lightly from one crisis to another'??o Was this episode
perhaps yet another instance of the ruinous consequences which the
war and its aftermath had on the machinery of government? Would it
have happened had ministers and ofrcials not been scattered between
London and Paris, rushed, hanied and overworked? How else to
explain this zig-zag of conflicting policies and divergent views of
which ministers and their advisers seemed sometimes to have only
the haziest notion? On 18 March, as has been seen, Balfour confessing
his inability to reach an informed decision yet orders a sudden, quite
unexplained and most injudicious reversal of policy. But the per-
manent under-secretary of state, who was there at his side in Paris,
does not seem to have known of his decision. For we find Hardinge on
19 March, that is, the following day, writing from Paris to Wingate to
say that he and Balfour had discussed Cheetham's proposed con-
cessions 'and we were strongly of opinion that there could be no
question of any concession until order had been restored and a govern-
ment formed. We both of us felt that no concession is possible so long
as disorders prevail and no government has been formed.'8o We must
conclude that unless Hardinge wanted deliberately to mislead
Wingate, he himself was in the dark as to Balfour's actual views.
Balfour's intervention, however, did not have any immediate con-
sequences. When his two telegrams of 18 March were received at the
Foreign Office, Sir Ronald Graham minuted: 'With all respect I
submit that this does not help us. We are and always have been
ready to discuss matters with Egyptian ministers, but we cannot
allow them to bring the Nationaiist leaders with them without re-
versing our whole previous attitude. It seems . . . that Mr. Balfour
desires to leave the whole question in Lord Curzon's hands and that
further reference to Paris will be unnecessary.'8r Curzon agreed, and
to another telegram of 19 March from Cheetham insisting that the
only solution lay in allowing 'extremists' to leave Egypt and'present
their case where they wished, he replied on 22 March that the first and
essential consideration was to restore law and order, that Cheetham
 THE CHATHAM HOUSE VERSION
that
was to transmit all proposals coming from Egyptians and to say
they could not receive consideration until law and order was re-
stored.sr
When Wingate learned of the disorders and of Cheetham's proposed
concessions his own advice - recorded in a memorandum of 2r March
- was that immediate repressive measures were necessary: 'I do
seriously doubt', he asserted, 'the soundness of giving way to the
nationalists' demands aJter they have committed such gross acts of
Iawlessness.'88 But though Cheetham was not to remain much longer
in authority, the high commissioner's advice did not override his
own. For Wingate and his views had become of little account at the
Foreign Office and he was soon to be superseded. His sudden and
brutal relegation, and the appointment of Allenby over his head as
special high commissioner, had remote causes little connected with
the present emergency. They dated rather from the time of his trans-
fer to Cairo where he replaced McMahon. The latter, having had no
previous experience of Egypt, seems to have relied on and been
guided to a large extent by the senior British officials of the Egyptian
government, particularly Lord Edward Cecil, the financial adviser
and Brunyate, the judicial adviser. On succeeding him, Wingate
seems to have been determined to restore to the high commissioner
the power and influence which McMahon had allowed to pass into the
hands of the advisers. This seems to have been resented and to have
created enmities for Wingate. There was, in particular, friction
between him and Cecil, which no doubt came to the notice of his
uncle Balfour and his brother Lord Robert Cecil, Brunyate too may
have put it about that Wingate was not in control of the situation.
This certainly was the tenor of a memorandum which he later sent to
the Milner Mission describing Wingate as having been 'too tired' for
his responsibilities and 'too unacquainted with modern Egyptian
conditions'.8{
Among the officials at the Foreign Office, Sir Ronald Graham, who
dealt with Egyptian affairs, was one of his detractors. Graham had
served as adviser to the ministry of the interior at Cairo, and had had
the ambition of succeeding McMahon, and this may have played its
part in shaping his attitude of extreme deprecation towards the
language which Wingate had adopted in dealing with Zaghlul and his
friends at the interview of 13 November r9r8. 'It is regrettable', he
wrote in a minute of z5 November r9r8, 'that these three Egyptians
received any encouragement from the sultan . . , but this confirms the
ro8
 SA.D ZAGHLUL AND THE BRITISII
recent reports we have had that the residency and the palace are not
working in as close harmony and contact as they ought to be. I also
regret that Sir R. Wingate did not turn down these Nationalists in
much firmer language than he seems to have used.' The only feature
of the agitation in Egypt which caused him some misgiving, he v. 'cte
in another minute of z9 November, was 'the half-hearted attitude
adopted by the residency towards it. The extremist leaders ought
never to have been received by Sir R. Wingate except for the purpose
of being told not to make fools of themselves.' Again, in a minute of
7 December, he asserted that 'the root of the whole trouble' was that
Wingate did not know how to manage Fu'ad and secure his whole-
hearted support; for without 'the sultan's tacit acquiescence, if not
approval, we should never have had any open Nationalist agitation
still less resigrnation of ministers'.85 In this last assertion Graham was
undoubtedly right, but he had no ground for thinking that Wingate
could have cajoled or persuaded Fu'ad into giving up his ambitions
or his intrigues. He wrs even further out when in a memorandum on
'The Unrest in Eg'ypt', quoted above, which was written in April
rgr9, he asserted that Wingate's handling of his interview with
Zaghlul had placed the British government 'at the outset, in a position
from which it was difrcult to recover'. For at that interview Wingate
had committed neither himself nor his superiors, and it was mere
fault-finding to argue that his reception of Zaghlul at the residency
encouraged the agitation and made it look respectable. But at the
Foreign Oftce it was not Graham alone who disapproved of Wingate.
Graham's minute of z9 November, mentioned above, is followed on
the file by a minute of the same date in which Sir Eyre Crowe re-
corded that 'Sir R. Wingate seems deplorably weak'. And it was
Crowe who added in the draft of the telegram sent to Wingate on
z December r9r8 (which is quoted above) the phrase to the efiect
that his reception of Zaghlul was 'unfortunate'.
A fortnight or so before Wingate's supersession, Symes, his private
secretary, told him of 'reports' emanating from Cairo that he was
tired out, that he was encouraging natives, that a change of high
commissioner was inevitable, and that when Wingate left Cairo and
did not resign a suggestion was actually put up to the cabinet that a
change in Cairo was desirable.s6 These nrmours were significant and
indicated with reasonable accuracy the direction into which things
were tending. For as early as the beginning of January r9r9, Wingate's
removal from Egypt was being seriously considered. 'f have sent this
r09
 THE CHATHAM HOUSE VERSION
telegram to Wingate', wrote Lord Robert Cecil to Balfour on 4
January r9r9, 'preparatory to his recall if you decide on that course.
Before sending it I spoke to the prime minister and suggested that if
Wingate was recalled, Allenby would be a suitable successor. This he
warmly approved and so did the CIGS to whom I mentioned it
confidentially. But the prime minister wanted nothing done which
would preclude Wingate's return to Egypt if that were decided on. I
hope the telegram leaves the matter quite open. But I ought to add',
he concluded, 'that everyone to whom I have spoken about Wingate
is confident that he is not up to the job.'
The outbreak which followed Zaghlul's deportation forced a de-
cision on Wingate's future. In his telegram to Balfour of 16 March,
quoted above, Curzon, while noting Cheetham's incapacity, did not
propose that Wingate should return to Cairo. He too wanted Allenby
to take charge of Egypt, obviously in the belief that he would be
more firm and decisive. 'I understand', he told Balfour 'that he arrives
in Paris tomorrow and will not be free to return for a few days. Will
you consult with him as to steps to be taken?'A few days later, on
19 March, Curzon sent another telegram (drafted by Graham),
reminding Balfour that Allenby was arriving in Paris on that day,
adding: 'I am sure you will agree that his early return to Egypt is
advisable'.88
Balfour and Lloyd George acted very promptly. The next day,
zo March, Curzon was told that Allenby was appointed special high
commissioner in EgSrpt - the title being an echo of the title of special
commissioner which Lord Dufferin was given when he was sent to
investigate conditions in Eglpt after the 'Urabi movement - and
that he was proceeding to Eg1ryt forthwith. In his memoirs Hardinge
has stated that, in appointing Allenby, both Balfour and Lloyd
George desired to restore British prestige by administering strong
measures and that the prime minister imagined'that in him he had
found a strong man who would impose the views of the British
government upon the sultan and would defeat the Nationalists'.
That this was Lloyd George's expectation is most probable, but
whether Balfour was of the same mind is more doubtful. His tele-
gram of 18 March is not easy to reconcile with afirm or coherent policy.
What is more likely is that he had come to entertain a prejudice
against Wingate, the necessity of whose removal loomed perhaps
larger in his eyes than the exact character and policy of his successor.
In his memoirs Hardinge asserts that he was doubtful of Allenby's
IIO
 SA.D ZAGHLUL AND THE BRITISH
ability to rule Egypt which, he thought, required a skilled diplomatist
and administrator, and that he pressed these consid.erations 'very
strongly' on Balfour.s, of such representations the available papers
afford us no evidence, but if Hardinge opposed Allenby,s appoint-
ment his language here indicates that this was not done in Wi ate,s
cause; it was Graham's merits which Hardinge must have pressed.
When Balfour informed Curzon of Allenby,s appointment, he
added to his telegram a 'secret and personal, paragraph to the effect
that Allenby's appointment as special high commissioner 'would not
of itself displace wingate who would for the present retain the post
of high comrnissioner. It is probable', Balfour added, 'that he wilinot
return, though an immediate decision on this point is not neces-
sary.'0o Wingate himself was told in a telegram of the same date that
the emergency in Egypt made it necessary for Allenby to be given
both civil and military authority, but that this 'makes no technical
change in your position'.0l For many months Wingate was left in
suspense. The only information he was vouchsafed if such it can be
-
called - was contained in a letter from Balfour the terms of which,
deliberately obscure and ambiguous, were carefully designed to
mislead its recipient. so long as Allenbywas dealingwith the existing
crisis, the foreign secretary informed the high commissioner on
z6 March r9r9, 'your services will hardly be required. How long this
exceptional period will continue and what shape the future govern-
ment of Egypt will take neither I nor any other man can say with
confidence'.02 Wingate remained until the autumn of r9r9 formally
the high commissioner, but he was completelyignored and kept aside.
On one crucial occasion shortly after Allenby,s appointment, as will
be seen, Curzon did ask for his advice; but its soundness did not
prevent it being once again dismissed.
Wingate did attempt once to extract an explanation of the treat_
ment to which he had been subjected. He went to Curzon in
June
r9r9 and demanded that an official enquiry should be held into his
conduct of affairs in Egypt. Not surprisingly,.Curzon found the
demand embarrassing. He wrote to Balfour in paris that he proposed
to tell Wingate that no reflection whatever had been cast on his
conduct and that Allenby had originally been sent because of his
military prestige. The movement in Egypt, however, had. proved
wider than anticipated. Normality was not yet restored and it was
undesirable therefore, and impossible to suspend Allenby from the
discharge of his duties. Since this might involve a revival of the
III
 THE CHATHAM HOUSE VERSION
troubles, he was proposing to confirm Allenby in his position, and to
him, lVingate, he was offering a Peerage. AII this, Curzon added,
was on the assumption 'which I gathered in Paris, that it is not
desirable that wingate should go back as high commissioner to cairo"
Balfour replied on g June that he had consulted the prime minister
who agreed to the offer of a peerage provided wingate undertook not
to raise the question of his dismissal in the House of Lords. 'It is not"
Balfour *.rrl on, 'an easy situation to handle' Wingate is a good
fellow, and has been a very valuable and distinguished public
servant. He gave specific advice on a difficult problem, warning us that
if his advice was not followed trouble would ensue. ThereuPon we
practically tell him that he is not the man most competent to deal
*itt tt. situation thus created, and that somebody else must be put
in his place! This, I take it, is the skeleton of the story, and it is not
on" ,r".y easy to clothe in attractive flesh and blood.' In extenuation
of the government's behaviour, Balfour adduced t"vo points: 'r'
That the rejection by the government of wingate's advice was justi-
fied by the facts as then known, and that the subsequent troubles
were not its results; z.ThatWingate after all that has passed, is not
the man to deal with this particular kind of crisis at this particular
moment.,gs Neither point has much weight. It is quite difficult to see
how .the facts as then known' justified the government's rejection of
Wingate's advice, unless by 'facts' is meant the prejudice against
wingate that had accumulated in the minds of ministers and officials.
As for Balfour's second point, if Wingate was not the man to deal
with the crisis, then Allenby, to judge by his record, was even less
qualified. Wingate was not in the end offered a peer€e' He was made
a baronet and offered the governorship of the straits Settlements,
which he turned down. He had also to engage in a long, wearisome
and petty controversy with the War Office about the amount of
pension due to him.
Allenby reached cairo on 25 March. Both Lloyd George and curzon
looked to him to use that firmness in which they believed wingate to
be deficient. There is no evidence to show whether Allenby was given
in Paris an idea of Balfour's rather different attitude, or whether he
was informed of the text of Balfour's telegram of 18 March which, as
has been seen, was disregarded by the Foreign Office and not trans-
mitted to cairo. The fact remains that immediately on arrival at
Cairo, he espoused the policy of that telegram and made his own
Cheetham's proposals, which both Curzon and Wingate had con-
tt2
 SA.D ZAGHLUL AND TIIE BRITISH
demned as ill-judged and dangerous. In so doing, he may have been
influenced by the views of his chief political officer, Sir Gilbert
Clayton. As early as r7 March, Clayton 'considered that the move-
ment [in Egypt] should be met by a generous recognition of legitimate
Egyptian aspirations and a readiness to consider reasonable requests,.
He submitted to Cheetham proposals which might serve as a basis for
settlement. Among them was one to the efiect that if suitable dele-
gates wanted to go to London no objection would be offered.and
those individuals of the [Nationalist] committee who were recently
deported will not be prevented from accompanyrng the delegation
-
if so desired'.o. A letter of his to Wingate written the following April
makes clear the assumptions on which he proceeded. ,I cannot dis-
guise from myself', he wrote, 'that the principles of Nationalism and
the desire for independence have bitten deep into all classes, and I
am convinced that our policy in Egypt must be very carefully re-
considered on lines of increased syrnpathy with national aspirations
so far as they keep uithin legitimate limits.'06 Clayton, then, believed
that the unrest of Egypt was caused by the denial of independence
or autonomy - as Zaghlul and the politicians claimed - and that
therefore the remedy for the unrest lay in treating with Zaghlul and
his friends and in working towards a political settlement on the lines
which these politicians had adumbrated. It thus followed that for
him Zaghlul's deportation had been a mistake and his release by
Allenby a necessary measure, as it was better to cut losses rather than
persist in the error.se Clayton's views, as Allenby would soon have
discovered, were now faithfully echoed at the residency, where
Cheetham, in order to persuade his masters in London, had in a
telegram of 17 March - already quoted - held out the prospect of
cooperation by 'Moderates' if the concessions he advocated were
authorised.eT
Immediately on his arrival at Cairo, Allenby adopted Clayton,s
and Cheetham's views. He was clearly out of his depth in Eg'yptian
politics and accepted uncritically the opinion that, as he put it in a
telegram of zo April r9r9, Zaghlul represented the'opinion of majority
of Eglrytian intellectuals';e8 as though 'Egyptian intellectuals, were
a known or intelligible entity, as though their opinions - whatever
they were or however ascertained - had overriding or primordial
importance, and as though it made the smallest sense in such a
situation to speak - except in the loosest and most misleading manner
- of representation or representativeness. But Allenby,s mind was
II3
 THE CHATHAM HOUSE VERSION
made up almost rui soon as he reached Cairo, and perhaps even before'
Mr pat[erson, then director general of State Accounts, testifies to this
in a memorandum which must have been written shortly afterwards.
'The release of the four [i'e. Zaghlul and his fellow-deportees]', he
wrote, 'was I think in Sir Edmund's mind from the beginning. I saw
him . . . within twenty-four hours of his arrival, and he hinted as
much. I respectfully pointed out that I thought their return would
make all government impossible, and as the high commissioner
made no comment on my remark I received the impression that he
disagreed with it.'oe
On 3r March Allenby informed Curzon that he had sent for the
ex-ministers Rushdi and Adli, and that they had asked him to remove
restrictions on the departure of would-be travellers from Egypt,
including the deportees. 'This concession', he said, 'without con-
ferring any ofrcial recognition generally from me, would automatically
restore tranquillity, andg uarantee formation of a Ministry' with
whom 'fruitful' discussion would be possible.loo This precipitate pro-
posal, buttressed as it was by glib and unconvincing arguments was
ieceived with dismay by Curzon in London. He was, he wrote in a
Ietter of r April to Balfour 'much startled' by this advocacy of a
policy which had been resisted since the previous November. Allenby,
he thought was 'misjudging the situation in its wider asp€ct' by
putting all the emphasis on the necessity of forming an Eglptian
Mir,ittry.tot But he was to find no support either from Balfour or
from Lloyd George' Allenby's appointment was their doing and they
did not dare - as Hardinge points outro2 - disavow or even oppose his
policies. 'Prime Minister and I' Balfour telegraphed to Curzon on
, .e,prit, 'are of opinion that as Allenby was appointed special high
commissioner of Eg:ypt . . . his advice cannot be disregarded.' 'It is
important', he emphasised, 'to avoid any apPearance of mistrusting
his present policy.' And Balfour ended his telegram by saying that
Allenby's policy was not 'in essence' inconsistent with the suggestions
he had made in his own telegram of 18 March'ros
Curzon now called Wingate to his aid. The high commissioner -
and this was his last intervention in Eg5rptian affairs - now wrote a
note in which he stated that he difiered'most strongly'from Allenby's
advice: 'The Nationalists', he pointed out prophetically, 'will say,
and with justice, that by agitation and intimidation they have forced
the hands of His Majesty's Government, and I do not think it is going
too far to say that we shall have practically abandoned the position
TT4
 SA.D ZAGHLUL AND THE BRITISH
in Egypt which we have acguired after years of patient toil and
labour.
'. . . our real power and authority will have practically gone and
we shdl be at the mercy of agitators at any time they care to repeat
the methods by which they will say they have obtained their ends in
the present crisis.'lo{ Curzon sent this note to Balfour with a letter
in which he told him that his telegram of z April'caused much con-
sternation here'. Balfour, as has been seen, spoke there of the im-
portance of not disregarding Allenby's authoritative advice; ,if it
comes to a question of disregarding authoritative advice', rejoined
Curzon, 'Iet it be borne in mind that Allenby is a soldier of great
ability and experience, but no experience of Egypt or its political
and administrative problems'. Wingate himself, Curzon went on,
who had originally suggested allowing an Egyptian delegation to
come to London, considered Allenby's policy 'a disaster'. The con-
sequences 'of this rapid and complete abandonment of our position,,
Curzon warned, would be catastrophic in Egypt and elsewhere.los
Curzon, also accompanied by Wingate and Graham, visited Bonar
Law, then acting prime minister, to try and enlist his support in
opposing Allenby. They were not successful: 'Wingate', wrote Bonar
Law to Lloyd George, 'makes a poor inrpression and I would have
no faith whatever in his judgment. On the face of it I should be
inclined to agree with Allenby'.roo
Allenby, then, had his way. He sent another telegram on 4 April,
in that urgent and peremptory tone which he was to adopt whenever
the government showed the slightest hesitation in ratifying his
decisions. It was essential, he now told Curzon, that 'a favourable
reply' should be given to his proposals which constituted .the least
concession that will suffice'; otherwise the situation would again
'become bad', as every day's delay augmented his difficulties and
increased the gravity of the situation.roz Jhs CIGS, Sir Henry Wilson,
probably instigated by him, added his pressure to Allenby's. In a
minute on the latter's telegram of 4 April which he sent to Balfour
through Hardinge he stated that 'unless Egypt is kept quiet we shall
be called on for more troops, and we shall have to send them which,
under present conditions, will be a matter of extreme difficulty'.roe
Lloyd George and Balfour gave in. The utmost that Curzon obtained
was that they should propose to Allenby that, as an alternative to
Zaghlul's release, he should announce the setting up of a commission
under Milner which would immediately set about investigating
I15
 THE CHATHAM HOUSE VERSION
Egyptian grievances. But, they added, they were not in a position to
judge whether this was wise, and would 'leave this matter to your
discietion, but in any event and whatever your decision we shall give
you our fullest support'. Allenby promptly replied that though a
commission would be desirable later, it was'useless' now and that he
was announcing forthwith the removal of travel restrictions and the
release of the deportees from Malta.loo In a minute of 7 April, Graham
wrote that this step, taken even before the formation of an Egyptian
Ministry, represented'a complete surrender'.llo
Why did Allenby act in this precipitate manner? When he reaclted
Egypt the worst of the disorders was over, and the threat to the
British hold over Egypt had been decisively overcome. GHQ's
'Historical Summary', mentioned above, states that when Allenby
arrived the Nationalists had begun to despair of success, especially
because of the severe attitude of Bulfin - who was in charge of
operations - and his refusal to have anything to do with them.
Allenby's arrival therefore was interpreted as a forerunner of
annexation and as indicating an intention to deal firmly with
agitators.llr 'The release of Zaghlul', wrote G' C. Delaney, Reuter's
correspondent in Egypt in a memorandum sent to Graham, 'was a
concession never anticipated. In fact the impression I gained was
that the leaders were greatly alarmed at the turn of events, had been
particularly impressed by General Bulfin's warning that he intended
to take repressive measures which would bring tremendous suffering
upon the country, and that, at any rate for the moment, they were
prepared to obliterate Zaghlul from their minds, and to concentrate
their energies on helping to form a Ministry, which they declared was
the first vital necessity for the restoration of tranquillity.'rrr To
decree Zaghlul's release Allenby no doubt thought a bold master-
stroke, allying clemency to firmness, thus eliminating what he took
to be the main obstacle to an Egyptian settlement.
In this he proved utterly wrong. For as Delaney pointed out in the
memorandum quoted above, the Egyptians 'misunderstood the
whole situation, translating General Allenby's action in releasing
zaghhiinto a concession wrung from the British authorities. It led
to truculence never hitherto experienced or even imagined, and
Egyptians naturally think that they have only to repeat their tactics
towring still larger concessions.' zaghhtl and his companions, released
from Malta, had gone to Paris where they bickered and wrote inef-
fective memoranda to the Peace conference and to the Powers.
r16
 SA.D ZAGHLUL AND THE BRITISH
Whatever hopes they had had of diplomatic action were soon dashed
by the international recognition of the British protectorate. But in
Egypt itself Zaghlul absent proved, as a result of Allenby's action,
much more effective and powerful than Zaghlul present. As Vansittart
put it in a minute of z5 April r9r9: '. . . The whole country is going
over to him fZaghlul] under the impression that he is on the winning
side, and we have conveyed that impression to the Egyptians.'rra
The extent of Allenby's miscalculation became speedily apparent.
The so-called moderates whom his policy was supposed to attract
became very dubious of collaborating with the protecting power
since it showed itself so inept, so hesitant and so ready to give in to
violence. Though Zaghlul's memoranda could make little impression
in Paris, yet his denunciations of anybody helping the British had
their effect in Egypt. For his supporters grew powerful after his
release. Donations to the Wafd,, whether given in self-protection or
whether extracted by threats, became usual. Thus immediately after
Zaghlul's release the well-known notable Badrawi 'Ashtr donated
ten thousand pounds; a member of the royal family, Prince Yusif
Kamal, gave two thousand; so that in a short while, says a chronicler,
large amounts of money came to be at the disposal of t};re Wafd,.
Allenby tried to put a stop to what a proclamation of his termed
illegal and forced collections, but he was unable to suppress ths svil.rrr
The British were as unsuccessful in putting down another, far
more serious, evil. This was the Wafd's terrorist apparatus, directed
by Abd al-Rahman Fahmi (fi7o-x946), who himself acted as the
secretary of. the Wafil committee in Cairo. Abd al-Rahman Fahmi,
ex-ofrcial and uncle of Ali Mahir and Ahmad Mahir, showed great
skill in organising demonstrations, riots, intimidation of public men
and newspaper editors, in addition to the forced collections which
Allenby was unable to prevent. Also under his control was a'supreme
Council for Assassinations' composed, among others, of Ahmad
Mahir, Mahmud Fahmi al-Nuqrashi, Abd al-Latif al-Sufani, and
Abd al-Rahman al-Raf i.115 Assassinations were, of course, the ulti-
mate and most powerful weapon which theWafd, didnot scruple to use.
Contrary, therefore, to Allenby's expectations, the so-called
moderates, as much out of fear as out of political calculation, became
more intractable after Zaghlul's release. Rushdi and Adli did indeed
form a Ministry, but tranquillity did not - as Allenby had confidently
asserted -'automatically' ensue. The Ministry soon had a civil service
strike on its hands, in which Ali Mahir took a prominent part. Rushdi
\t7
 THE CHATHAM HOUSE VERSION
and Adli proposed to deal with it by ofrcially announcing that
Zaghhtl and his friend'represented'the Egyptian nation. Unwilling,
or afraid, to withstand Zaghlulist agitation, Rushdi and Adli resigned
on zr April r9r9, after less than a fortnight in ofrce. The main benefit
which Allenby anticipated from his policy was thus speedily shown to
be illusory.
Muhammad Sa'id was persuaded to form a Ministry. He also
showed the same unwillingness to shoulder responsibility or adopt a
finn policy. His'desire to avoid unpopularity among Egyptians and
his anxiety to placate his countrymen by measures involving a show
of concessions obtained from myself', Allenby wrote in a dispatch of
ro July r9r9, 'have led at times to positions of some difficulty.'rrz
Among the concessions which Muhammad Sa'id succeeded in obtain-
ing were a relaxation in the censorship of the press and the discon-
tinuance of military courts for the trial of offences against public
security (other than those committed against members of the British
army).llt Both concessions gave greater scope to agitation and
subversion and thus increased unease and disquiet in Eg1ryt. By the
end of r9r9, and as a consequence of Allenby's policy, Egypt was in a
more parlous situation and was more difficult to govern than when
he had taken over. But a new element now appeared which was
further to complicate a situation almost hopelessly tangled.
As has been seen, when Allenby at the end of March proposed to
release Zaghhi, he was asked to consider as an alternative policy the
dispatch of a mission to investigate Eg'yptian grievances. He dis-
missed such an alternative, insisting that only his policy would
answer. But he agreed that it would be useful to send a mission later.
It was Lord Milner, the colonial secretary, who had served in Eg1ryt
under Cromer, who was now appointed to head a Special Mission to
Egypt. Milner, however, was not in favour of going out to Eg'ypt im-
mediately. In a most interesting letter which he wrote to Curzon on
z5 April r9r9, he referred to 'the great blunder made by Allenby,
when, to save himself from being left without an Egyptian Ministry,
he made the concession about passports and the release of Zaghlul
and Co. For thirty years we have governed Egypt because of the
conviction in the minds of the intriguing Pasha class that in the last
resort we could and would do without them. That conviction, for
some reason or other, has been weakened of late years. Hence the
present troubles, which are simply a "try on" on the part of the caste.'
This being so, Milner concluded, it would be a mistake to send a
II8
 SAID ZAGHLUL AND THE BRITISH
mission just then:'It looks as if we were flustered, afraid of the
situation created by the non-existence of an Egyptian Ministry and
the naked assertion of British authority, and felt tirat something
must be done to get us out of a hole.'ug Milner was inclined, therefore,
to postpone the mission to the following September. Allenby started
by deprecating this delay. But the Egyptian prime minister,
Muhammad Sa'id, wanted the mission postponed until the signature
of the peace treaty with Turkey which should finally consecrate the
British position in Eg1pt. In urging postponement Muhammad Sa'id
was clearly afraid of the attacks being mounted on him by the Wald
as a tool of the British, and he did his best, by means of public declara-
tions, to show himself as opposed to the Milner Mission as his
Zaghlulist opponents.l8o He was no doubt encouraged in this attitude
by an attempt on his life organised by the Wafd,'s apparatus. When
the coming of the Milner Mission was finally announced, Muhammad
Sa'id found it more advantageous - or perhaps safer - to announce his
resigaation.l2l He was succeeded by a Copt, Yusuf Wahba, who was
politically of no account but who - in the circumstances - shorved a
rare courage in agreeing to take office. Muhammad Sa'id's behaviour
once more showed Allenby's impolicy in thinking to attract'so-called
moderates by making concessions to extremists.
Milner, as has been seen, was at the outset for postponing the visit
of his mission. But as time went on, he came to see that delay too
had its disadvantages: 'Personally', we find him writing to Graham
on z6 August r9r9 'I should not object to postponement. But politic-
ally I think it would be a mistake. . . . The mission is based on the
assumption that the protectorate exists. Would not its postponement
in itself suggest that we were not sure about it?'rs2 In this Milner
spoke better than he knew; for he and his mission were to show
precisely that fatal uncertainty about the legitimacy of the British
position in Egypt which, added to Allenby's initial blunder, largely
ruined the edifice which Cromer had built with such skill and
pertinacity. Delay in any case had a serious immediate consequence.
It gave time to Abd al-Rahman Fahmi to set on foot and perfect a
system of threats and agitation - the so-called boycott - which was
quite efficient in isolating Milner's Mission and in seriously cramping
its style.123
The Milner Mission finally arrived in Egypt in December r9r9. It
left the country the following March, having heard much evidence
from British officials and businessmen, from foreign residents and a
r19
 THE CHATHAM HOUSE VERSION
few Egyptians, and having conducted discreet conversations with
some leading Egyptians. The purpose of the mission, as defined in a
letter from Curzon to Allenby of 15 October r9r9, was to devise the
details of a constitution which would define the respective provinces
of the British protecting power and of the Egyptian government.lrr
Milner himself seems to have set out with the idea that the purpose of
the mission was not to liquidate but rather to buttress the pro-
tectorate. The way to do this, he came to believe quite clearly, rvas
by negotiating a treaty between Great Britain and Egypt which
would secure to the former the powers of control deemed absolutely
necessary. But he was quite emphatic that such a treaty was not a
substitute for the protectorate but only a definition of it, its chief
purpose being to save Egyptian face.126 During his stay in Egypt,
however, his ideas seem to have gradually changed. The change which
they sufiered is most clearly seen in a conversation which he had with
a European businessman in Egypt, E. R. Fischer, who took the line
that the welfare of Egypt required more, not less, British control.
Milner did admit that British control was in the interest of the
Egyptian masses. But these masses were mute, and the only clamour
to be heard was that of politicians abusing and reviling the British.
In such circumstances what Fischer recommended was 'a fine ideal,
but I cannot say that I feel convinced that Great Britain would
have the power or the will to pursue it'. What Fischer said, Milner
noted in his diary, 'rather tended to shake the conviction, at which I
have been gradually arriving, that the right line for us to take is
gradually to draw out of the administration of Egypt and put more
real power and responsibility into native hands'.r28 As his colleague
on the mission, J. A. Spender, later put it, Milner had come to believe
that 'if the Egyptians did not want us to govern them and could keep
order and maintain solvency without us, we were under no obligation
to undertake the invidious, difficult and very expensive task of
governing them against their wi['.rz? The more Milner got involved in
the quicksand of Egyptian negotiations, the more he came to lull
himself with mere words and to believe that in giving up power to the
benefit of Zaghlul, or of Fu'ad, or of the so-called moderates, he was
actually conferring a benefit on the Egyptians, that this, in fact, was
the crown and culmination of Cromer's work which in days gone by
he had celebrated in a well-known work, England, in Egypt. In rgeo
a new edition of this book, the thirteenth, came to be published, for
which Milner wrote a new Preface' In it he said:
t20
 SA.D ZAGIILUL AND THE BRITISH
it
That should be possible to contemplate so large a measure of inde-
pendence as is now proposed for Egypt, is surely the rnost striking tribute
to the efficacy of Great tsritain's reforming work.
Strangely enough, the view has been expressed in some quarters that
any relaxation of British control over the administration of Egypt would
be an abandonment of the objects which we have been hitherto pursuing
in that country. Nothing could be further from the truth. The establish-
ment of Egypt as an independent state in intimate alliance with Great
Britain, so far lrom being a reversal of the policy with which we set out,
would be the consummation of it. . . . That we should attempt [it] at all,
is evidence at once of our good faith and oI our confrdence in the sound-
ness of the work which we have been doing in Egypt for the last eight
and thirty years.lr8

And in a debate in the House of Lords he said, on 4 November rgzo:

My belief is that a course of action is possible which will enable us to
ensure all that we need in Egypt, including the maintenance of order
and progress of which we ourselves are the authors, without involving
ourselves in permanent hostility with the Egyptian nation. My intimate
conviction is that, while there is undoubtedly an element of Egyptian
nationalism which is anti-British, the better and stronger elements of it
are not anti-British but simply pro-Egyptian.l8e

These passages, as the evidence shows, are not mere rhetoric designed
for the public defence of a policy. They represent an actua"l conviction.
Their fanciful character and sentimental tone therefore indicate a
loss of contact with reality, the outcome not so much perhaps of
intellectual debility, as of that failure of nerve, that weakening of the
will to rule, which became manifest among the British ruling classes
in the aftermath of the first world war, and which was to make the
dissolution of the British empire so ugly and ruinous, to subjects and
rulers alike.
Commenting in his diary on his conversation with Fischer, Milner
recorded that the latter's views 'were in some respects inconsistent
with the conclusions at which, I think, we have most of us arrived'.
The papers of the Milner Mission confirm this judgment in respect of
some at any rate of its members, notably J. A. Spender and Cecil
Hurst. An undated memorandum by Spender probably written
while the mission was still in Egypt argued that if the Eg'yptians were
left to themselves it was 'extremely probable that the government of
Eglpt would become an oligarchy in which the poor would be entirely
at the mercy of a small governing class'. 'The best hope of correcting
t2t
 THE CHATHAII HOUSE VERSION
these tendencies', Spender went on, 'is that the political guarrel
between Britain and Egypt should be healed, and that in giving up
formal control the British should be able to strengthen their influence
with the younter Egyptians and to induce them freely to accept their
help and guidance'. It was, Spender insisted, 'of the highest im-
portance that concessions should not be made with the artiCre pensie
that they will fail, but that the utmost help and good will should be
shown by the British in making them succeed.' It is difficult to see
how exactly Spender thought that the misgovernment of Egypt
could be prevented by a policy of concessions, or who 'the younger
Eglrytians' were on whom he pinned such faith. But it remains the
case that he believed that the nationalist movement was 'beyond
doubt, deep and genuine', and that this fact should govern all future
policy.lso Hurst's views were less high-flown, more down-to-earth.
In a memorandum of zo February tgzo,he advocated'spontaneous
concessions' because, if the legitimate grievances of the EgSrptians
were met, the cry for complete independence might die away. The
argument seems plausible but is really fallacious since the legitimate
grievances of the Egyptians and the pretensions of Zaghlul were by
no means identicd. Hurst had other, quite cogent, arguments in
favour of concessions. Relations with the United States and with the
Muslim world might deteriorate if Egypt were held down by force;
again, limited concessions now might avert others, more far-reaching,
which a different British government might feel inclined to concede
in the face of continued disorder in Egypt. The guiding principle of a
settlement, according to Hurst, ought to be that Egypt should have
control over all sections of the administration which weie not vital to
British interests and which were not necessary for the discharge of
obligations to foreigrr powers. Egyptian ministers were to be respon-
sible to an Egyptian Chamber of Deputies, and the sultan was to
become a constitutional monarch. The nationalists might reject this
as not the complete independence which they were demanding, but
experience would show them that th6ir demand was not realistic:
'Experience', Hurst asserted, 'is the only argument that will convince
the Eglrytians that they are not all-competent, and I think that
experience ought to be forced upon them. British control ought to be
withdrawn [from ministries which were of no vital interest to Great
Britainl whether the Egyptians like it or not.'r8l Whether the
Egyptians like it or not: the Egyptians must be given Zaghlul and
Fu'ad to gulp down like an unpleasant, but salutary medicine. But
r22
 SA.D ZAGHLUL AND THE BRITISH
since the exercise of power is quite remote from the practice of
medicine, Hurst's liberal, high-minded and confused metaphor had
the most sinister of consequences. What these might be can be
illustrated from a remark attributed to Hurst and Spender in the
papers of the Milner Mission. They had been hearing evidence about
the manner in which Zaghlulists, by means of pressures and threats,
were managing to force village 'omdas to collaborate with them:
'Mr Spender and Mr Hurst', we read in the minutes of evidence,
'observed that the principle might be adopted of allowing the
Egyptian government to do things shocking to us as long as they
did not affect foreigrr infs165fs.'r82 If this was what a policy of con-
cessions meant, then it was a policy which, sooner rather than later
would destroy whatever loyalty and respect the British had managed
to inspire in Eg1ryt and make their position meaningless and un-
tenable. This policy Milner and his mission, and later Allenby and
his advisers, unhesitatingly recommended.
The views of Milner, Spender and Hurst became very much those
of the mission as a whole. On their departure from Eg1ryt they drew
up a number of General Conclusions, dated 3 March r9zo, which on
t7 May Milner sent Curzon with a covering letter stating that these
were the unanimous views of the mission. In these General Con-
clusions the mission proposed the conclusion of a treaty with Egypt:
'In determining the measure of control which Great Britain must
continue to exercise over Eg'ypt, and for her right to exercise which
any treaty must provide,' the mission stated, 'we should be guided
by the principle to restrict the direct exercise of British authority to
the narrowest possible limits, and outside these limits to rely upon
the moral influence of British ofrcials serving under Egyptian ministers
in a genuinely Egyptian administration.'Couched in the fashionable
euphemisms of the time, this proposal embodies essentially Milner's
failure of nerve, Spender's liberal fanaticism, and Hurst's low and
misguided common-sense. Side by side with this key passage we find
other statements which seem like meaningless relics from a past age,
asserting British responsibility for the good government of Egypt.
The mission recognised that 'owing to the backwardness of the mass
of the people, of whom ninety per cent are quite illiterate, it will be
many years before any elected Assembly is really representative of
more than a comparatively limited class. Parliamentary government
under the present social conditions', they went on to say, 'means
oligarchical government, and, if wholly uncontrolled, it would be
r23
 TIIE CHATHAM HOUSE VERSION
likely to show little regard for the interests of the Egtrptian people.'
Therefore, the mission considered that 'any treaty or convention
regulating the relations of Great Britain and Egypt must at the same
time define the general character of the future constitution of Eg1ryt.'
'In doing so', they bravely asserted, 'we must seek to safeguard indi-
vidual liberty and the interests of the mass of the people'. Whether
the proposed treaty which restricted British authority 'to the
narrowest possible limits' was compatible with such aspirations,
whether 'the moral influence of British officials' was alone sufficient
to protect individual liberty and the interests of the mass, the mission
do not discuss. Even more difficult to reconcile with the mission's
main proposal, and with what we know of their attitude is the passage
in which they discuss what would happen if no treaty were to be con-
cluded. In this event 'no relaxation of British control is either possible
or desirable. fndeed', they assert, 'it may be necessary for Great
Britain to undertake fresh responsibilities. It is impossible to allow
the decline of governmental authority, due to the inherent weakness
of the present system, to continue.' The evidence, such as it is, shows
that there was no disposition at all on the part of Milner and his
colleagues to contemplate 'fresh responsibilities' in Egypt. This
passage, therefore, figuring in a confidential document, indicates that
Milner and his colleagues were either not fully aware of their own
assumptions, or else that behind the professed unanimitv there were
unresolved disagreements of which these incompatible proposals are
the sign.rss
In their General Conclusions the mission declared that the proposed
treaty would have to be confirmed by a representative assembly. But
it had first to be negotiated. With whom, then, to negotiate? The
Ministry, headed by Yusuf Wahba, manifestly had no authority,
and was moreover itself anxious to avoid involvement in any negotia-
tion whatever. fn an interview with Milner on z9 February rg2o
Wahba stated that ministers preferred not to be consulted about any
proposals which might be made by the Milner Mission, and begged,
moreover, not to be quoted publicly by name. 'I have always felt',
wrote Milner, 'that ministers were only anxious to see us go away
without their having committed themselves in any way.'r8{ Fu'ad,
likewise, much as he would have liked to be recognised as the proper
authority to negotiate on behalf of Egypt, manifestly could not make
good such a claim.
There remained the other public men, ex-ministers and notables.
124
 SA,D ZAGHLUL AND THE BRITISH
They, indeed, abounded in suggestions and advice and were visibly
hungry for office and power. But they were unwilling to shoulder
responsibility on their own, and terrified of Zaghlul and his apparatus
in Egypt. The straits to which the British were now reduced may be
summed up in this, that now they had to treat on equal terms with
men whom, before r9r4, they were accustomed to manage; with men
moreover who, unused to the rough-and-tumble of real politics, were
bound in any negotiation to prove broken reeds. They had to treat
with courtiers, with obedient bureaucrats, with tame and safe ad-
ministrators who at the slightest squall were likely to scurry for
safety. Milner confessed himself disappointed. No one, he wrote to
Curzon on 17 February tgzo, had sufficient courage to break with the
extremists and come forward to meet him halfway.l36
The exception to all this was Zaghlul. His ambition gave him a force
of spirit, a frenzy which cowed and intimidated his rivals. The blunders
of these rivals, and of the British, of course gave him many oppor-
tunities, but it was his character which enabled him to seize these
opportunities and shape them to his own purposes. So, in the end,
the Milner Mission had to recognise that if Muhammad would not go
to the mountain, the mountain had to come to Muhammad. Those
who seem to have mainly helped it towards this conclusion were
Zaghlul's rivals, Rushdi and Adli. It was they, as will be remembered,
who acting in concert with Zaghlul had precipitated the crisis of
November r9r8. They now saw a possibility of regaining power with
enhanced prestige by getting Milner to agree to autonomy or inde-
pendence. In a letter to Spender of r February rg2o, Milner said he
was quite sure that Adli and his friends were anxious to get rid of the
Wahba Ministry and take their places at once.138 But as at the end of
r9r8, Rushdi and Adli now prudently refused to take power or assume
responsibility on their own. Adli was in touch with Abd al-Rahman
Fahmi in Cairo and Zaghlul in Paris. He suggested that Zaghil
should come back to Cairo and join him in negotiating oficially
with the Milner Mission. But Zaghlul, as wily as his correspondent,
would not limit thus his own freedom of manoeuvre. He declined in
February to join an administration to be formed by Adli, lest, as he
told Adli, the uprightness of the Wafd. might become suspect, and in
order that the confidence which they enjoyed among the people might
be of use in providing support and smoothing the path for Adli.187
Adli and Rushdi now hit on another plan. On z6 February Milner
recorded in his diary that Adli had broached the idea of an unofficial
125
 THE CHATHAM HOUSE VERSION
delegation 'approved oi but not appointed by the sultan and the
government' which would 'talk the matter over with the mission'.
This unofficial delegation was to include Adli, Tharwat, Rushdi,
Sidqi, together with ZaghL,lL and one or two of his friends. The essen-
tial, Adli insisted, was that Zaghlul should be a party to the move.
He, Adli, was willing to go to Paris and induce Zaghlul to agree. The
advantage of this scheme according to him, was that negotiations
would commit neither government. Mitner proved quite favourable
to the idea and told Adli that if Zaghlul was willing the mission would
raise no difficulty.188
Thus, shortly after the mission's departure from Egypt, Adli
himself left for Paris in order to organise this 'unofficial' delegation.
From Paris Adli plied Milner with hopeful reports. Zaghlul and his
friends, he wrote on z6 April were 'dans les meilleures dispositions
pour arriver tr un accord'; therefore Milner should send to Paris a
'personne de votre confiance' who would carry out preliminary
negotiations.lse Adli's bulletins were suPPorted and confirmed by
those of Walrond. Osmond Walrond had served in South Africa at
the turn of the century and had there known and become friendly
with Milner. During the war he was in the Arab Bureau in Cairo and
afterwards became an agent of the Secret Intelligence Service in
Egypt. Milner listened to and trusted his advice which, as will be
seen, was often erratic and injudicious. When Adli left for Paris,
Walrond followed him to provide liaison with Milner. On z8 April
he reported to Milner that he had seen Adli, who was 'surprised' to
find Zaghlul and his friends in'such a conciliatory and chastened
frame of mind'. Again, on 8 May he wrote that Adli was trying to
persuade Zaghlul to come to London with one or two other members
oltheWafd and 'to say that it is a private invitation from yourself"uo
Such reports now made Milner, who had been rather sceptical of
Adli's chances of success, quite hopeful as to the outcome of negotia-
tions with Zaghlul: 'As far as I can gather,' he wrote in a minute of
8 May, 'Adli and Zaghlul are working together and may be regarded
as the moderate wing of the Nationalist party. The chances of coming
to a good understanding with the Egyptians are brighter than they
were.'141 And two days later he went so far as to write to Walrond
that in the last resort he was willing to go himself to Paris as he was
'very anxious to meet Zag;hlul', but that a meeting in London, if it
could be arranged, would be more convenient.
But such optimism notwithstanding, it was proving rather difficult
t26
 SA.D ZAGHLUL AND THE BRITISH
to entice Zaghlul to London. He was now being wooed, and was there-
fore in no hurry to oblige. Also, his basic strategy was to commit
himself to nothing, and to leave himself free to criticise and attack any
agreement which Adli or anybody else might negotiate with the
British. Before coming to Paris, Walrond had clearly seen this. On
z9 March he had written to Milner from Cairo that since Zaghlul
claimed to have received from the Egyptians a 'mandate' for nothing
less than 'complete independence', he wanted to shift responsibility
for any compromise with the British on to Adli and his friends.l'8
But now in Paris, in his eagerness to bring Zaghlal and Milner to-
gether, he seems to have forgotten this, Milner likewise seems to have
attached no importance to this situation. His neglect of its implica-
tions was shortly to prove quite ruinous to British interests in Eg5rpt.
Walrond, then, enthusiastically believing in Zaghlul's readiness to
negotiate an agreement, strongly urged that Milner should do his
utmost to overcome his hesitations. Milner had proposed that
Zaghlul and Adli should go to London for private discussions' This
would have been consonant with Adli's original suggestion of an
'unofficial 'delegation. But Walrond now pointed out that Adli and
Zaghlul did not want to do this because 'their conduct in going to
London uninvited and unrecognised would be criticised and turned
to their detriment, especially if they came back without result'. Adli
also did not wish to make a false move and assume responsibility
alone. He could not afiord to have it said that the lV afd, had obtained
less than they might have because of him. If it was not possible to
recognise theWafd,, then Zaghlul and his colleagues should be invited
privately to London, together with Adli. Alternatively, Milner himself
might come to Paris or send Sir Rennell Rodd or Mr Hurst' 'The
Wafd,, wrongly called Nationalists', asserted Walrond, 'are not un-
friendly, if we reason with them.' He thought it quite possible 'zoill
Ad,li Pasha's hel,p' to get the Wafd,'on our side'; it was quite possible,
he continued, compounding his misjudgment,'that once the Milner
Mission and the Wafd, came together, for the latter to prove 'reason-
able'. Walrond went on to say that he had shown this letter to Adli
who 'thoroughly approves of it', and who suggested that Hurst, who
was then in Paris, should be taken to see Zaghlul privately: 'He need
not discuss the vital points but talk sweet nothings and if possible
impress them with his liberal views in general.'l44
Milner, therefore, instructed Hurst to get in touch with Adli and
Zaghlul who rvere 'nervous of coming here on the score of publicity',
r27
 THE CHATHAM HOUSE VERSION
to 'try and persuade them of the importance of doing so'.1.6 When
Hurst visited Zaghlul the latter asked whether he was invited to go
to London as the representative of the EgSrptian people and whether
the invitation would be a written one. Hurst demurred to both of
these suggestions. All he was prepared to do was to extend an oral
invitation. 'En ma qualitd de membre de la Mission Milner, j'invite
Votre Excellence I se rendre I Londres pour causer avec Lord Milner
et les membres de la Mission et trouver les bases d'une entente.'
Zaghlul then asked whether he was at liberty to write to his followers
and tell them that Hurst had visited him and extended such an
invitation. Hurst declared that he would have to consult Milner on
this point.l{6 These proceedings made Walrond impatient. Hurst, he
told Milner, was not 'supple' enough. 'I have seen nothing in any of
the Wafd.' , he insisted, 'to change my views or think them anything
but well disposed to us and all anxious to bring about an accord.
They are the Hisb el-Umma, the "Party of the People", and it was
an evil day when they were first dubbed "Nationalists". I do not
think they will in the end prove "difficiles" to manage.' 'The Wafd.
organisation in Egypt', he asserted, 'if we win them over, contains
the intellectual class. We can win them', he assured Milner, 'I am
certain of what I say.' But Walrond was not only inclined to show
too much of. that zhle against which Talleynand has warned diplomats ;
he was also, for a secret agent, dangerously gullible: 'I hope', he went
on to tell Milner, 'you have got Curzon to ask Allenby to go slow for
the moment. Of course the attempts on ministers are not anything to
do with the Wafd.. But only indirectly. I mean they are not directly
responsible and are absolutely ignorant of the organisations for
assassination.'r{?
Having consulted Milner, Hurst told Zaghlul that he was at liberty
to write and tell his followers of Ifurst's visit and invitation, with this
proviso that the invitation was to Zaghlul in his personal capacity
and not as Chief of the Egyptian Delegation.r4s But these subtle and
alembicated distinctions in the end availed the British nothing.
Zaghlul's telegram to Cairo announcing his forthcoming visit to
London was for him a distinct triumph. 'Mission Milner', it said,
'invita Delegation Eg5lptienne par entremise Hurst membre de la
Mission I se rendre I Londres pour discuter avec elle les bases d'un
accord entre Egypte et Grande Bretagne.'This was not what Milner
had authorised and Hurst had conveyed to Zaghlul; but to have
publicly contradicted Zaghlul at this stage on a point which seemed
r28
 SA.D ZAGHLUL AND THE BRITISH
so unimportant would have jeopardised the talks which Milner -
following Adli's and Walrond's assurances - expected to resolve the
whole Egyptian difficulty. Zaghlul's telegram went on to say that
three of his colleagues were travelling ahead of him to London 'pour
s'assurer des dispositions de Grande Bretagae concernant les aspira-
tions Egyptiennes pour l'inddpendance compldte'. This last phrase,
Walrond informed Milner, 'means nothing.'l{e
Milner's conduct of his negotiations with Zaghlul was, from first to
last, unbusinesslike in the extreme. He does not seem at any stage to
have consulted either Curzon or the cabinet. Equally surprising is
Curzon's behaviour. In a cabinet memorandum of rr October rg2o
he discloses that the General Conclusions of the Milner Mission written
in March r9r9 and sent to him the following May were only then
being circulated to the cabinet. He also reveals that it was only at the
end of August rgzo that Milner sent him the proposals he had made
in the negotiations with Zaghlul, and by that time the cabinet was
already dispersed and unable to discuss them.160 And it would seem
that at no stage, from Zaghlul's arrival in London towards the end of
May until the end of August, did Curzon inform himself about the
character or the progress of the negotiations.
Milner, again, showed an anxiety for conciliation - even when
prospects of an agreement seemed quite remote - which was so extreme
as to be taken for pusillanimity and gullibility. Scott, who was acting
high commissioner in Allenby's absence during the summer oI tgzo,
suggested on ro August that in the event of negotiations with Zaghlul
failing, steps should be taken against Zaghlulists in Egypt. Milner
refused to countenance even the discussion of such plans. 'We cannot',
said a telegram of 14 August drafted by hiIn, 'approve of any action
which would exacerbate local situation and, by once more making
Zaghlul and his followers our enemies, consolidate all sections of
Egyptian Nationalists against us. Of course we must be prepared
sternly to repress disorder, but the idea of breaking up the Zaghlulist
committees or forbidding the Zaghlulists over here to return to
Egypt does not commend itself to us at all.'r6r No wonder that Scott
was shortly to report that the Wafd appeared 'to continue its some-
what high handed methods of extracting money from the fellaheen.
From a series of petitions and personal visits to the residency', Scott
continued, 'it would appear that its agents, working in some cases
it is alleged with the mamours, do not hesitate to use threats in the
event of the natives being unwilling to contribute'.168 In August, it
r29
 THE CHATHAM HOUSE VERSION
might be thought, there was a real hope of an understanding with
Zaghlul. By the following November this hope had utterly disap-
peared. And yet we find Curzon telegraphing to Allenby at Milner's
suggestion:'I do not favour the idea of publicly announcing our
intention to keep troops in Eglpt until we get the terms we want,
as this would look like using military pressure to enfqFce our condi-
tions, whereas it is of the essence of the proposed settlement that it
should be a bargain into which the Egyptians entered with their eyes
open and of their free wiU.'r68
Milner's attitude to the Zaghlulist terrorist apparatus shows even
more clearly his misjudgment of the situation and of the men with
whom he had to deal. It might be argued that a desire to show good-
will prompted him to instruct Allenby to allow during the negotiations
cypher communications between Zaghlul and his followers in Egypt,
and not to subject to censorship articles in the Egyptian press in-
spired by the Zaghlulists,ror 6o, his attitude to the arrest, trial and
condemnation of Abd al-Rahman Fahmi and some of his coadjutors
betrays in this experienced statesman a simple-mindedness which is
simply astonishing. On z7 Jane rgzo Allenby reported that Abd al-
Rahman Fahmi was under suspicion of organising terrorism and that
he proposed to arrest him and search his house. Approvd was given
the following day, but on the day after another telegram was sent
ordering Allenby to defer action until further instructions. Approval
was at last given, but the requisition of Abd al-Rahman Fahmi's
house was delayed for a fortnight, because it was feared that the
search might disclose documents embarrassing to Zaghlul. On 17 July
Allenby telegraphed once more asking for permission to search, and
J. Tilley at the Foreign Office in a minute of the same date expressed
his opposition to such a search which he feared might end all negotia-
tions with Zaghhtl He admitted that failure to perquisition might
result in Abd al-Rahman Fahmi's acquittal, which would make the
residency look foolish; but at least negotiations with Zaghlul would
not be internrpted. Allenby was instructed to defer action. But the
following day the high commissioner returned to the attack. He sent
a'very urgent' telegram, 'earnestly begging' authority for the search.
On 19 July a telegram dictated by Milner expressed doubts whether
a perquisition would produce documentary evidence 'of any value'.
but at last gave Allenby a free hand. By then it was entirely too late
and the search produced nothing.rsr
Abd al-Rahman Fahmi was found guilty and condemned to death
r30
 SA,D ZAGHLUL AND THE BRITISH
in October r9zo. Zaghlul and his friends, then in Paris, protested
against the trial and against the prosecutor's allegation that Abd
al-Rahman Fahmi was the intermediary between Zaghlul and the
terrorists. Walrond made himself the willing and eager mouthpiece of
these protests. In a telegram of ro October from Paris he expressed
the conviction that Zaghlul was'genuine in the matter'; Adli also
thought that something ought to be done, otherwise 'present atmo-
sphere of fraternity and good feeling in Egypt might be damped'.
By then, of course, as will be seen, such professions were utterly
empty, since Zaghlul had already done his best to ensure the failure of
his negotiations with Milner. However, in a minute on this telegram,
Tilley took the view that the death sentences pronounced against
Abd al-Rahman Fahmi and his accomplices were 'a mistake', and
should be reduced to imprisonment. The War Office was asked to
instruct the Commander-in-Chief, Egypt, not to confirm the sentences,
pending further instnrctions.lsc
Allenby was then in London and he was consulted about a possible
commutation of the sentences. In a letter to Tilley of 13 October he
rejected Adli's opinion as transmitted by Walrond and insisted that
Abd al-Rahman Fahmi and the other ringleaders should pay the full
penalty. To follow Adli's advice, he said, 'would be to desert those
who stood by us and our friends, and would be a surrender to the
party of intimidation and murder'. Milner's minute on this letter is
curious and instructive. He said that he regarded the business with
the greatest misgiving; he had 'good reason' for not feeling sure that
the findings of the military court were 'unimpeachable'; if the sen-
tences were to be simply confirmed'I should feel that we were running
the risk of something much graver than the failure of the present
negotiations ,iz. a permanent source of bitter and envenomed feeling,
as bad or worse than Denshawai.'r67 We see thus the Conservative
statesman governed in his actions by the clich6s which a decade and
more of Radical agitation had spread and made familiar. The papers
show that Milner and the Foreign Ofrce tried hard to find a way of
upsetting the convictions or the sentences. The trial was scrutinised
by the judicial adviser to the Eglptian government who, Scott
reported in a telegram of z4 October, concluded that he could not
advise quashing the verdict, since he found that the trial was regu-
larly conducted and the evidence adequate.168 Hurst, at one point,
tried to find a technical ground for upsetting the trial, but this came
to nothing. In the end, however, Abd al-Rahman Fahmi's sentence
13I
 THE CHATHAM HOUSE VERSION
was commuted to fifteen years' hard labour. When Zaghlul came to
power in tgz4 he was released from prison, but the two quarrelled
and fell out the following year.160
Milner went even further in preventing action against terrorists,
and this at a time when all hope of agreement with Zaghlul had
vanished. On zr October rgzo Scott reported that since the arrest
of Abd al-Rahman Fahmi, terrorist outrages had ceased. He asked
for authority to carry out further investigations which might affect
a large number of suspects. The matter was left pending in London
for a month and more. On z5 November, Milner minuted: 'My advice
would be strongly to drop the pursuit of these real or imaginary
criminals.' Egypt, he went on, was now tranquil. Why risk a distur-
bance by such investigations? These might connect 'some of Zaghlul's
more extreme followers more or less directly, with some of the past
outrages. I feel sure,' he added however, 'that Zaghlul himself has
had nothing to do with them.'Allenby was informed on 27 November
that further investigations of suspected terrorists should be dis-
continued.l60 In the meantime, Allenby had, as he reported in a
telegram of z5 November, directed that Fakhri Abd al-Nur, 'suspected
leader of seditionists, prime mover of campaign of intimidation and
attempted comrption of witnesses for prosecution' should be inter-
rogated by the military authorities. He proposed that other suspects
should be similarly dealt with. This proposal J. Murray, of the
Egyptian Department, termed 'unfortunate', and Milner minuted, on
z9 November, that so long as Egypt was quiet it was better to dis-
continue these investigations.lol
Was so much tenderness towards Zaghlal and his apparatus, we
may ask, warranted by the negotiations and their outcome? Milner
and his colleagues approached these negotiations with the aim of
concluding a treaty. 'The mission', Milner wrote to Adli on z3 June
r92o, 'has publicly declared that its object is to reconcile Eg5rytian
aspirations with the special interests of Great Britain and the legal
rights of all foreign residents in the country.
'I have been, and am, of opinion, that this object might be achieved
by the conclusion of a treaty between Great Britain and Eg)rpt.'102
At the very outset, then, Milner was abandoning the British position
and abandoning it to a set of self-appointed politicians who had no
formal authority to negotiate on behalf of Eg'ypt. In efiect Milner
was making them a gift of Egypt and its people to milk and misgovern.
This was pointed out by the minister Isma'il Sirri who happened to
r32
 SA.D ZAGHLUL AND THE BRITISH
be in London at the time of the negotiations. He had an interview
with Rodd on 2 July rgzo which the latter reported to Milner. Sirri
pointed out, Rodd informed Milner, that 'we have assumed responsi-
bility which we must not in common fairness to the bulk of the
Egyptian people surrender'. An autonomous Egypt ruled by a Parlia-
ment, etc., Sirri also argued, would deliver Egypt 'into the hands of
the dominant class, who would manipulate elections and purchase
votes - the whole system of administration by baksheesh would start
afresh and the fellah would undoubtedly be oppressed.'r63 This, of
course, is what came to pass, and it did not require great divinatory
powers in order to prophesy such an outcome. But it may be argued
that the mission, having decided that there was no reason 'why Great
Britain should be the party primarily responsible for the internal
administration of the country inasmuch as no vital British interest
is served thereby' and that 'such responsibility entails a great burden
on the British tzrxpayer'rM had discounted Sirri's objections in ad-
vance and was willing to tolerate the state of affairs he prognosticated
in exchange for a treaty.
But did Mitner get the treaty he wanted? While he was in Egypt
Milner refused repeatedly and categorically to concede, in any con-
ceivable treaty, control by Egypt of her foreign relations. 'Our de-
termination to control the foreign affairs of Egypt was', as he told
Adli, 'absolute'.166 He was still of the same opinion at the start of the
negotiations with Zaghlul. But he found the latter equally adamant
that the control of foreign afiairs, 'a question of capital importance',
must be conceded to Egypt, or else no agreement was possible.
Zaghful made this demand on zz June. By 5 July Milner had already
conceded it.l66
Did this concession ensure a treaty for Milner? It could not possibly
do so, since Zaghlttl and his so-called Delegation were really nobody's
delegates and had no power to sign a treaty. In justifying its curious
proceedings, the Milner Mission argued in its Report that since a
treaty would have to be approved by 'a genuinely representative
Egyptian Assembly', since a 'popularly elected body' became there-
fore necessary, and since the Zaghlulists would command'a substantial
if not an overwhelming majority' in such a body, negotiations with
Zaghlt:J became necessary.lo? The argument has the sophistical
plausibility which has distinguished recent official British thought on
imperial matters; but however plausible it clearly ofiered no scope
for the conclusion of an actual treaty. So that Milner's negotiations
r33
 THE CHATHAM HOUSE VERSION
with his resourceful and obstinate opponents issued not in a treaty
but in a document which came to be known as the Milner-Zaghlul
Agreement, 'but which', the Milner Report notes with a fine discri-
mination, 'on the face of it, was not an agreement, but merely an
outline of the bases on which alr agreement might subsequently be
framed'.108
This so-called agreement stipulated that a treaty would be con-
cluded'under which Great Britain will recognise the independence of
Egypt as a constitutional monarchy with representative institutions'.
In exchange for this abolition of the protectorate and the virtual
abandonment of the British position, the agreement envisaged that
Egypt would concede to Great Britain the right to protect the privi-
leges of foreigners and to safeguard imperial communications and
strategic interests.roo
In conceding so much, Milner no doubt hoped that he would settle
the Egyptian problem once and for all. But he seems to have for-
gotten that the agreement was yet not an agreement, and that his
opponent was a wily opponent. For having secured all these con-
cessions, Zaghlul now argued that since the agreement did not fulfil
all the dcmands that he had been mandated to pursue, it was neces-
sary for him to go back to his principals, the Egyptian people, and
seek their approval! Milner allowed himself to be duped by this
gambit, and Zaghlul retired to take the waters in France, with
Milner's concessions in his pocket and himself uncommitted. He felt
he could do better; with a little management, he would probably be
able to improve his terms and to emerge as the one undisputed leader.
He had assured Milner that his agents would recommend the agree-
ment to the Egyptians and Milner had believed him;rzo but, in fact,
with them went a secret letter to the Zaghlulists in Egypt, explain-
ing that whatever these agents might say in support of Milner's
proposals, he himself was a6ainst them. He knew, he said, that his
colleagues, in a compromising spirit which he fully understood,
wished the agreement ratified, but he himself preferred to go on with
the struggle rather than accept a diminished sovereignty.r?l Zaghlul's
attitude to the agreement did not long remain secret. A dispatch
from Cairo in the Daily llail of 7 September revealed that his
objections to the agreement had been published. The agreement,
Zaghlul claimed, did not satisfy the demands of the Delegation and
they had not accepted it. If now the Egyptian people chose to reject
it, Zaghlul also would reject it. Tilley minuted, ingenuously: 'It
r34
 SA.D ZAGHLUL AND THE BRITISH
appeani to be extraordinary bad faith on the part of Zaghlul'! But
Milner chose to shrug off Zaghlul's public repudiation of the agree-
ment: 'I don't think much is to be gained by worrying about Zaghlul',
he minuted, 'the control has really passed out of his hands and he
will come into line right enough if things go well in Eg)rpt.'uz
But how could things go well in Egypt, in the face of Zaghlul's
triumphant intransigence? The British authorities seem, at first, to
have been deluded by the hope that Zaghlul's emissaries would
genuinely recommend the agreement and that their doing so would
actually decrease Zaghlul's popularity and increase that of Adli's.tzs
They also believed that Zaghlul might be appealed to 'to show a
little courage' and back the agreement! Acting on this suggestion the
Foreign Office sent on 17 September a telegram (approved by Milner)
to Walrond in Paris in which he was asked to enquire from Adli
whether Zaghlul could be induced to support the agreement, or
whether Adli himself could not intervene 'and instruct delegates to
support proposed agreement and publish his approval of its terms'.rzr
The telegram exhibits vividly the crass misunderstanding of
Egyptian politics which reigned in the Cairo residency, in the Foreign
Office, and among the Milner Mission. From November r9r8 it had
been Adli's settled resolve to do nothing unless he could carry Zaghlul
with him, or unless his opposition could be neutralised. By September
rgzo this should have been amply apparent, and that it was futile to
ask Adli to endorse publicly a set of proposals which Zaghlul u'as
publicly attacking. Similarly, Zaghlul's attitude towards Adli should
by then have been surmised. Zaghful was determined to use Adli if
possible, but not to afford his rival the slightest advantage. His
attitude to Adli and Rushdi was as he expressed it in rgzr to Ali
Mahir: 'I will cut their throats before they cut mine.'176 He now let it
be known that had it not been for Adli he would have obtained much
better terms from Milner. Telegrams, which he did nothing to dis-
avow, were sent by his followers from Paris to Eg'1ryt, claiming that
Adli had impeded negotiations and had been a 'disaster' for the
Wafd,.na These tactics led to a scission within the Wafd,. Those
prominent politicians who had been originally associated with
Zaghlul now quarrelled with him. The Wafd.became Zaghlul's thing,
and he was surrounded by hitherto obscure men like Nahhas,
Makram 'Ubaid, Nuqrashi, etc. who rose to prominence as his devoted
followers and the servants of his cult.
Some responsibility for the abysmal misunderstanding of Egyptian
r35
 THE CIIATHAM HOUSE VERSION
affairs must again be laid on the erratic and mercurial Walrond. As
has been seen, he had been a most enthusiastic advocate of negotia-
tions between Milner and Zaghlul, the previous May. When these
difrculties arose a few months later, we find him abruptly altering his
tone and pinning all his hopes not on Zaghlul but on Adli. 'Zaghlul
Pasha, it is true,'we see him writing in a minute of rz October, 'is a
despot and a savage wild man but he is sincere and has a certain
rugged kind of honesty. He is a mere child at negotiations.' Zaghlul,
he went on, was intensely vain and ambitious: he was going to be a
trouble, and Adli alone could control him.177
Adli could do nothing of the kind. Zaghhtl and his colleagues re-
turned to London at the end of October rgzo and told Milner that if
he wanted an agreement he had to concede more. In order to make his
proposals palatable to the Egyptian people, he was told, Zaghlul's
emissaries had had to say not that the protectorate would be abolished
upon the conclusion of a treaty but that it had already been abolished
and that Egypt would have complete autonomy in internal as in
external affairs. Would Milner confirm this interpretation of the
agreement? His credulity and patience at last exhausted, Milner
refused to do so.178 His policy was in ruins and the Egyptian problem
as far as ever from a solution.
Indeed, Milner's mismanagement had prodigiously complicated it
and had seriously damaged the British position. The Milner-Zaghlul
Agreement was supposed to be, strictly speaking, not an agreement.
But this distinction proved to be purely academic, and in actual fact
the British government found itself committed in advance to con-
cessions which should have been the outcome of a hard-and-fast
treaty. Clayton, then adviser to the interior in Cairo, made the point
in a minute of zo September, that is before the negotiations broke
down. If the British government were to refuse to sanction the
Milner proposals, he wrote, 'a serious situation would arise. H.M.G.
may not be committed to the scheme technically, but I am con-
vinced that public opinion throughout Egypt and elsewhere in the
near east would regard any drawing back now as a complete breach of
faith.'us With Zaghlul and his followers on the rampage, every
Egyptian negotiator, whether Adli or anybody else, would be bound
to demand more than what Zaghlul had rejected. And the vexing
thing was that no one in Egypt had seriously expected Milner to
ofier such concessions. When Fu'ad was first told of them he, accord-
ing to Scott 'confessed to a feeling of surprise that there should be a
r36
 SA,D ZAGHLUL AND TIIB BRITISH
disposition to make concessions of so extensive a nature at the
instance of men who had fomented a revolution directed against
himself, and had caused so much embarrassment to H.M.G. last
year.'loo We need not take seriously Fu'ad's protestations of injured
innocence which no doubt were meant to hide his jealousy of, and
dismay at Zaghlul's success.rol But we need not doubt that the sur-
prise was genuine. Again when the Report of the Milner Mission was
published in the spring of tgzr, Allenby reported (in a telegram of
16 April) that the Eg:lrytians were astounded at the extent of the
British concessions.
The cost of Milner's impolicy fell due immediately. Having em-
barked on informal negotiations with Zaghlul, the British govern-
ment could not suddenly turn round and refuse further negotiation.
And such negotiation had to start from Milner's concessions. Allenby
warned, in a telegram of rz January r9zr, that a wide modification of
Milner's proposals 'would bring extreme party once again into
prominence'. Three days later he informed Curzon that the sultan
required a public declaration setting out the official British attitude
to the Milner scheme. Two days aftenrards Allenby proposed two
alternative lines of policy. The government had either to accept
immediately Milner's proposals or it had to declare that the status
of the protectorate was 'not a satisfactory relation in which Eg1ryt
should continue to stand to Great Britain', and that a treaty would be
discussed with an ofrcial delegation. Though there was.no gainsaying
the damage to the British position done by Milner's negotiations, yet it
could be argued that the best way to limit the damage was by re-
fraining for the moment from negotiations, abstaining from declara-
tions, and putting down the Zaghlulist apparatus in Egypt. And in the
cabinet which met on zz February to consider Allenby's suggestions
it was indeed argued that the matter was not urgent and that it had
been made perfectly clear that neither government nor Parliament
were committed to Milner's scheme. But Curzon was in favour of
declaring that the protectorate was not satisfactory and of holding
out to the Egyptians the prospect of a treaty. In a cabinet memo-
randum of zr February he argued that if the protectorate was
abolished, the Eglrytians would be pacified and, by means of a treaty,
the British could secure all their interests 'as we did with the Indian
princes a century ago'. Milner was also present at the cabinet by
invitation, and he urged that the present moment was favourable for
a treaty and that delay might worsen matters. The cabinet therefore
r37
 THE CHATHAM HOUSE VERSION
adopted Curzon's view and authorised a declaration to the effect that
a protectorate had ceased to be a satisfactory relation between Great
Britain and Egypt and that another relationship had to be nego-
tiated.lsr By this declaration the British government oftcially
accepted and ratified Milner's view of the Egyptian problem and un-
conditionally conceded what Zaghlul and his associates had been
claiming for more than two years. To show anxiety for further talks
after Milner's failure was bound to weaken the British position; to
admit at the same time that the Zaghlulists had been right to de-
nounce the protectorate was, gratuitously, to weaken this position
still further.
The declaration of zz Febntary rgzr made further negotiation
necessary. With whom, then, to negotiate? One of Illilner's assump-
tions was that Zaghlul and Adli were the only two Eglptian Person-
alities with whom agreement could be reached. Negotiations with
Zaghlul having broken down, therefore, it was to Adli that Milner
looked for success. When the split between Adli and Zaghlul became
apparent torvards the end of.tgzo we find him writing : 'I believe the
srrccess of the "Entente" policy [i.e. between Britain and Egypt]
depends on Adly's maintaining fhs lsad.'ras His views found an.echo
in the Foreign Office where Murra/, of the Egyptian Department,
declared (in a minute of zo November rgzo): 'I should have thought
the situation was ripe for a moderate man like Adly Pasha to rally all
the more sensible elements to the support of an agreement on the
lines of Lord Milner's proposals without reservations.'16r But Adli
had been out of power since the spring of r9r9, and if he was to
negotiate officially he had to be appointed by the sultan as prime
minister, or at least as head of a delegation. Now Fu'ad did not like
Adli, and saw no reason why he should get all the credit of fraving
obtained Egyptian independence. Thus, when Allenby brought up
Adli's name at an interview with Fu'ad on z4 February, the latter
replied that 'he was not of the opinion that he represented any real
party in the country and expatiated on the danger of relying too
much on him'. Parties in the western sense, the sultan said, were
nonexistent in Egypt and Adli'could not be regarded as controlling
a coherent and important section of public opinion'. Fu'ad's advice
was no doubt self-interested, but it happened also to be sound.
Fu'ad tried hard to avoid making AdIi prime minister, naturally pre-
ferring someone who would be clearly his own nominee. The Foreign
Ofrce, however, were determined that Adli should become prime
r38
 SA.D ZAGHLUL AND THE BRITISH
minister. Adli, Sir Ronald Lindsay thought, 'quite rightly' insisted
that Fu'ad should behave like a constitutional monarch, and jealousy
for Egyptian constitutionalism no doubt impelled him to instruct
Allenby to enforce this choice.l86 Allenby acted accordingly. On
14 March he sent a message to Fu'ad advising against the appoint-
ment of Muhammad Sa'id whom Fu'ad had wanted to make prime
rninister, adding that 'my advice once given was not my own but the
opinion of His Majesty's Government which they would expect
should be followed'. In his dispatch recounting this episode, Allenby
stated that Fu'ad accepted Adli with resignation: 'If', Allenby went
on, 'he was unwilling at first to admit the claims of the party to whom
the country had come to look for leadership, some allowance must be
made for the fact that the blood of Mohammed Ali runs in his veins.
It is with difficulty that members of that house can be persuaded that
the old order of things has passed away, and that even in Egypt the
ruler nrust conform to democratic practice, and in matters affecting
the fate of the country accept the expression of the people's will.'186
It was rather bizarre to mistake the voice of Sir Ronald Lindsay,
speaking through the mouth of Lord Curzon, for that of the Egyptian
people.
Adli, then, was forced on the unwilling Fu'ad. But was it to any
purpose? Did he have it in him to withstand Zaghlul, with whom he
had broken and who now became vociferous in his denunciations?
As soon as Adli formed his Ministry, Zaghlul issued a manifesto from
Paris demanding the primacy in any negotiation with the British.
Soon thereafter he returned to Egypt and published his demands in
Cairo. I{e demanded complete control over Adli and his Ministry
and declared that the Milner proposals had to be turned down,
martial law abolished, Abd al-Rahman Fahmi released from prison,
British troops not to be stationed west of the Suez Canal, and the
Sudan declared Egyptian territory. These demands, of course, went
further than anything Zaghlul had put before Milner; they were
clearly designed to cramp Adli's style and to pave the way for an
attack on any conceivable agreement which Adli might reach with
the British. Zaghlul's preface to his demands is revealing. I{e declared:
'I have done all the work. I have sufiered, and I have the confidence of
the Egyptian people. I rvill not see credit for what I have done taken
away from me by Adly or anyone else. It is true that Adly has the
support of a certain amount of opinion, but his support is rnainly semi-
foreign.raz
r3g
 THE CHATHAM HOUSE VERSION
Adli tried to reach an accommodation with Zaghlul, but he failed.
Za4hlul- as Harry Boyle, who was then on a visit to Egypt, reported
- looked upon himself 'as though he was absolute ruler of the country
and almost seemed to be under the control of some sort of megalo-
mania'.188 To show his power he began inciting the country against
Adli, whom he denounced as a British agent and a traitor to Egypt.
Riots and demonstrations again inflamed the country; one particu-
tarly bloody affray took place in Alexandria on zo and zr May, in
which foreigners were murdered and their houses looted. This riot
was investigated in some detail by a commission of enquiry, whose
report is a classic of its kind.180 This report makes it possible to form
an accurate idea of Zaghlulist political methods and organisation.
At the outset of the riot the following circular was distributed among
the populace:
You have known who are the members of the of6cial delegation. They
are the lowest of God's creatures on God's earth. They are people who
have neither conscience nor honour. They are people who sacrifrce their
honour for the sake of filling their bellies and for filling governmental
positions. Where are your students? Where are your fellaheen? Where
are your devotees? Where is he who ofiers himself to redeem his home-
land and save his country from disaster? Let you be rising. Rise, you
heroes, and generously give what is dear and cheap {or the sake of your
Fatherland, and for the consolidation of the throne of the nation and its
faithful agent Saad Pasha Zaghlul. Know ye that heavenly laws and
rvorldly laws allow killing and shedding of blood in this circumstance.
Let the Prophet - may Allah bless Him! - be the best example. He
killed many in the way of spreading the Mohamnledan call and exter-
minating the influence of murlaililin [backsliders], and the night resembles
the preceding night. We defend the dearest thing on earth; defead our
life or death; defend our children aud grandchildren' Remember the
Prophet's word, 'The love of home is part of the faith'. What have you
decided upon? History is on the alert, Long live Saad! No chief except
Saad! Down with the Government's Delegationl Down with the dissentient
membe$lre0
The follower of Muhammad Abduh then, the believer in constitu-
tionalism and reform, did not scruple, in his pursuit of power, to
appeal to the fanaticism of the mob and its savage instincts. Cromer
foresaw some such development when he said in his Report for 19o6
that whilst some enlightened Egyptians might wish to divorce politics
from religion, yet '[unless] they can convince the Moslem masses of
their militant Islamism, they will fail to arrest their attention or
r40
 SA.D ZAGHLUL AND THE BRITISH
attract their sympathy'. 'Appeals', he went on, 'either overt or covert,
to racial and religious passions are thus a necessity of their existence
in order to insure the furtherance of their programme.'rol
It was a few weeks after the Alexandria riots that Walrond, now
back in Egypt as an agent of the Secret Intelligence Service, proposed
that Curzon should invite to London an unofficial delegation to be
headed by Zaghlul. Zaghlu,l, Walrond added, was willing to go, pro-
vided the invitation did not come from the Egyptian government.rer
This proposal seems to conclude Walrond's active involvement in
Eg'5ptian politics.
Adli came to London in the summer of rgzr under the shadow of
Zaghlul's threats and fulminations. IIe came pledged, as he stated in a
letter to the sultan, to ensure that the negotiations would issue in
Egypt becoming 'an independent state both from the external and
the internal point of view'.re3 From the start the prospects of an
agreement seemed doubtful. In a telegram of 7 May Allenby warned
that to arrive at an agreement with a delegation led by Adli and to
secure its ratification by an Egyptian assembly 'will be both matters
of great difficulty'.ter The Foreign Office had prepared, against
Adli's visit, a draft convention which the cabinet discussed at a
meeting on rr July. The draft convention, in its main provisions,
terminated the protectorate; allowed the re-establishment of an
Egyptian ministry of foreiga affairs and the appointment of Egyptian
consuls (but not of diplomatic representatives)i gave the British
government the right to maintain troops in Egypt and to control
the administration of the Debt; and established a judicial commission
to protect the rights of foreigners in Egypt. Curzon warned the
cabinet that 'Lord Milner's Commission had so far prejudiced the
situation that the freedom of the government in negotiations was
severely hampered', but he undertook not to make concessions
regarding Eg'yptian diplomatic representation without consulting
the cabinet. Negotiation proved very difficult. 'In reporting the
separate points discussed', wrote Lindsay, who took a prominent
part in the discussions with Adli, 'I find difficulty in expressing any
opinion with confidence as to what Adli would really accept or
definitely reject. He is so often prepared to admit his personal con-
currence with a view without admitting his ofrcial acceptance of it
that I can do little more than admit impressions.'r06 But the funda-
mental difrculty lay not in Adli's character or his manner of negotia-
tion. It lay in his inability to agree to any treaty which might give
t4r
 THE CHATHAM HOUSE VERSION
Zaghlul an opening to attack and discredit him. Curzon had, in the
end, to concede diplomatic representation, but the talks broke down
on the military clause of the draft convention, Adli declaring that it
constituted 'occupation pure and simple'.ree It became clear by mid-
November that Adli's failure would mean his resignation.loT
In a final attempt to avert failure, Adli saw Lloyd George. Their
interview is most interesting in showing the real causes of the break-
down, and Adli's limitations in the exercise of power - limitations
which Milner, the Foreign Office and the residency had long and
adamantly refused to take into consideration. Lloyd George spoke to
Adli of the urgency of dealing with Zaghlul and his agitations, and
threw out the suggestion that he might be cleported from Egypt.
He proposed that the talks should now be adjourned and resumed
after Zaghlul's removal. Adli's reaction clearly indicated that he had
no stomach for actions of this kind. He was, he told Lindsay, 'unable
to associate himself with any such policy. He had no love for Zaghlul,
and if H.M.G. decided to proceed against him now, it must be their
affair, though he himself doubted the advisability of action at this
moment.'This would'merel1, increase the agitation'. As for himself,
he could not go back to Egypt, shelter behind Allenby's bayonets,
crush Zaghlul and come back to accept terms which he now rejected.ros
In a final interview with Curzon, again, Adli asked why the British
should not themselves put into operation the terms of their own draft
convention: 'For the very obvious reason, I replied,' wrote Curzon
to Allenby, 'that this could only be done with Egyptian cooperation;
and yet he himself, the man most competent to give it had told me
at our previous meeting that his first step on returning to Egypt would
be to resign.' Curzon protested that the Egyptians could not have it
both ways, pose as heroes by rejecting the British proposals on one
hand, and on the other expect Great Britain by herself to put into
operation the scheme of very considerable independence which they
had chosen to reject.r0e Curzon had, of course, reason to be exas-
perated, but after all it was the British themselves who had forced
Adli's appointment and chosen to negotiate with him.
The failure of the talks with Adli left the British government even
more committed to concessions than the breakdown of the Milner-
Zaghlul Agreement. In a cabinet committee which considered the
British proposals and the Eg5ptian counter-proposals Churchill
declared that in any ofier then made the parts favourable to Eg,vpt
would be remembered and used as the basis of any future discussion,
r42
 SA.D ZAGHLUL AND THE BRITISH
whilst the distasteful parts would be forgotten. Lindsay thought that
this could be met by telling AdIi that all offers rvere withdrawn if he
rejected the present one.2oo This, however, wErs easier said than done
and Churchill's fears proved, in the event, to be justified.
Curzon's failure with Adli, as will be seen, transferred the initiative
from the Foreign Office to Allenby and his advisers in Cairo. It was they
who dictated the settlement embodied in the declaration of z8
February tgzz. Their proposals were resisted - albeit ineffectively -
by some members of the cabinet, but at the Foreign Offrce their views
were, more often than not, echoed aud approved by those to whom the
foreign secretary principally looked for advice on Egyptian matters.
Of these the principal were Lindsay and Murray. In a minute of
October rg2o on the Milner proposals, Murray declared that it was
safe to assume that a treaty on the lines of the Milner-Zaghlul
Agreement would secure that mutual confidence and collaboration
between British and Egyptians without which an orderly and lasting
regime was impossible. It was true that the Milner-Zaghlul Agree-
ment departed widely from the original views of the Milner Mission
and that the risks it entailed might be held to be excessive, but it
was difficult to discover an alternative course. If the government
failed to endorse it, this would be seen as a sig.n of bad faith, 'and will
permanently alienate the sympathies which the result of the negotia-
tions had secured for us'. Murray was silent on the character or im-
portance of such sympathies, but he urged that the alternative to
Milner's policy lvas coercion, which meant the maintenance of a
costly army and much obloquy for Great Britain in the east.201
When the negotiations with Adli were nearing breakdown, in a
memorandum of r November Murray did consider that the possibility
of outright annexation should not be set aside and that nothing should
be said which might be interpreted as a pledge not to annex.zoz Also,
as will be seen, at the very outset of the crisis which Allenby pre-
cipitated following Adli's resignation, Murray, on one solitary occa-
sion, questioned the wisdom of the high commissioner's policy. But in
general he advocated the view that the dangers involved in making
wider concessions than either Milner or Curzon had contemplated
were less formidable than those entailed by a failure to reach agree-
ment. For after all, as he argued in a joint minute with Duff Cooper
of 14 October rg2r, the worst likely consequences of a policy of con-
cessions were 'the gradual decay and corruption of the administra-
tion of Egpt which would lead to financial difficulty, outbreaks of
r43
 THE CHATHAM HOUSE VERSION
disorder, massacre of Europeans', whilst the alternative was a prospect
of continuous repression depending on a large British army at least
rz,ooo strong maintained in Egypt for an indefinite period; and such
a policy ran the risk of losing the support of Parliament. Murray
and Cooper thought then that the irreducible minimum on which
Great Britain had to insist (and which Adli might still reject) was the
right to maintain troops in the Canal and for a limited period in
Alexandria; the continuation of the status quo in the Sudan ; a veto on
the appointment of foreigners in the Egyptian service; compensation
for British officials whose services were to be terminated; the enact-
ment of an indemnity law to protect British offrcials against the legal
consequences of actions taken during the uprising of r9r9; and a
tuarantee for the payment of loans secured on the Ottoman
Tribute.zog
Lindsay was exactly of the same mind. Commenting in a minute
of 15 October on Murray's and Cooper's views, he argued that if no
agreement with Adli was possible, then the British would have to
gor"* Egypt with bayonets. But the British could not do this well,
and for it to be done at all required the unflinching support of
government, Parliament and public opinion. This Lindsay did not
think forthcoming and he therefore refused to enter into a path which
led to 'ultimate disaster'. The proper objects of British policy in
Egypt were the safeguard of imperial interests and of British pre-
dominance. This meant that they had to abandon 'the solicitude we
have displayed for forty years for the orderly conduct of Egyptian
domestic affairs - a solicitude,'he added, showing how influenced he
was by the clichds of the time, 'which Egyptians have come to resent
very strongly.' Such a policy, Lindsay thought, 'places squarely on
Egyptian shoulders the exclusive responsibility for the internal
administration of Eg'ypt, with aU that it implies'. It is here that the
essential fallacy of this view is most apparent. For in the first place
there was no way of separating internal from external afiairs, and
'squarely' placing responsibility for the former on the Eg'yptians,
while maintaining British predominance in respect of the latter. And
if., Per impossibile, such a separation could be managed, and the
Eg'yptians administered Egypt well, how then would the British
iGtty their military predominance in the country? If, alternatively,
ih. Egyptit ts failed in their attempt to administer Eg'ypt, this might
require British intervention, as Lindsay recognised, and would not
this lead, by another road, to the 'ultimate disaster' which he was
r44
 SA.D ZAGHLUL AND THE BRITISH
determined to avoid? Lindsay also showed a dangerous ignorance of
what political rhetoric can do when he argued in the same minute
that if responsibility for the administration of Eg,ypt devolved on the
Egyptians and if they failed in their task, then 'not even they will be
able to blame us for the failure'.2o{ It is not too much to say that
Lindsay was utterly a defeatist in Egyptian afiairs. At the start of the
negotiations with Adli, the Foreign Office received a paper by Sir
William Hayter, the legal adviser to the Egyptian ministry of
finance and to the residency. In this paper, Hayter advocated the
immediate granting of complete independence to Egypt with Britain
reserving to herself the protection of foreigners, the safeguard of
imperial communications and the defence of Egypt. The arrangement
was not to be embodied in a formal treaty but to constitute an informal
nrod.us aiuend,i for a period of ten years. In a minute of z9 June,
Lindsay described this as 'a valuable and promising' suggestion,
which might have, in the end, to be adopted. He recognised that it
had weak features: namely, that if the British gave away the pro-
tectorate, which was their trump card, they would have to face
another negotiation ten years hence 'with our leverage pro tanto
diminished'; also, it would create uncertainty if. the modus uioendi
was to be for a limited period, and this was undesirable. 'I admit'
wrote Lindsay, 'it is like borrowing money at rather usurious term.'.
but he was willing to accept this if the crisis could be postponed for
ten years.2o5
Hayter's views, as expressed in the memorandum of 5 June rgzr
which has been cited above, were congruent with the terms of his
evidence before the Milner Mission in February tgzo. He then stated
that politically minded Egyptians had 'a serious grievance'. When
war broke out in r9r4 Eg1ryt was developing towards a large measure
of parliamentary government, and the Legislative Assembly had made
a very promising start. With an optimism which the sequel proved to
have been ill-judged and fanciful Hayter looked to the Legislative
Assembly in an autonomous Eg'ypt to develop a sense of responsi-
bility in Egyptian ministers.2oc
These views found an echo among the principal British advisers
who had taken office at the inception of the Allenby regime. For
shortly after his arrival in Egypt Allenby had carried out a veritable
purge among the senior British officials in the Egyptian government.
Dunlop, the educational adviser, and Haines, the adviser to the
interior, resigned.roz The appointment of Brunyate, the judicial
r45
 TIIE CHATHAM HOUSE VERSION

adviser, was terminated: 'his personality and manner', Allenby in-

formed Curzon, 'are unsympathetic to the Egyptians, and cause
friction'.ros Allenby's Purge was reported to Washington together
with a possible explanation for its motive:
The advisers of interior and public instructions [wrote the American
consul] in addition to sevcral capable subordinates have been asked to
resign. A clean sweep of existing staff appears to be contemplated. There
is a strong presumption that this is due to apprehension of Foreign
Office with regard to commission of inquiry held by Milner which is
expected to arrive in October. Inasmuch as its members are expected
to be of pronounced liberal tendencies its findings may prove embar-
rassing to present regime. Consequently, it may be intended to confront
it with a revised administrative personnel and blame for conditions
placed on former occuPants of the various advisory Positions.roe

It is more likely that Allenby acted not under the influence of the
Foreign Office but of Sir Gilbert Clayton who, as chief political
officer of the Egyptian Expeditionary Force, was very close to him,
and who became acting adviser to the interior under the new regime.
Sir Reginald Patterson, who shortly afterwards became acting
financial adviser, now rePlaced Dunlop at the ministry of education.
'It was thought', writes Humphrey Bowman in his memoirs, 'that
rvith a new adviser at the helm, sympathetic with Egyptian aspira-
tions, and of proved ability, discipline would return to the schools.'r1o
When Patterson retired as financial adviser in tgzT he made a speech
in which he 'requested Egyptians to forget what they consider bad
in the old British policy . . . [and] passed some oPinions to the effect
that the Egyptians were ripe for self-government and able to conduct
the administration of their country.'81r
Sheldon Amos replaced Brunyate as judicial adviser. Lindsay
called him in a minute'a rather advanced Radical',lrr and a Belgian
lawyer who served in the Mixed Tribunals described him as 'convinced
of the value of the principles of British liberalism', a prudent applica-
tion of which he now thought necessary in Eg'1pt.818 His views on an
Egyptian settlement may be gathered from a memorandum of z7
July rgzr by Murray. This document gives the gist of a discussion
at the Foreign Ofrce in which Lindsay, Murray and Amos considered
the likely situation in the event of the talks with Adli breaking down.
Adli, it was thought, would then resign, and it was doubtful whether
any other Eg:Srptian would have the courage to succeed him. There
r46
 SA,D ZAGHLUL AND THE BRITISH
would then be a risk of a revolutionary movement which would be
preceded by an attempt to paralyse the adnrinistration by strikes
which, €ui was discovered in r9r9, would be difficult to combat. At
this point, Murray added a marginal note to the effect that 'Mr Amos
would like to paint this bogey even blacker than I have done,.
Terrorism would then break out, which would be impossible to sup-
press. Therefore if negotiations with Adli broke down, in order to
gain Egyptian sympathies the British offer must look as good as that
of Milner. The British should insist only on the stationing of forces
in Egypt. They should abandon all attempt at financial or judicial
control, provided full publicity in the details of financial administra-
tion was secured and provided the appointment was secured of a
British official to whom foreigaers could appeal against abuses of
power by Egyptians.zu Amos was to play, with Clayton, a chief
part in the crisis which led to the declaration of z8 February t9zz.
Clayton himself, as has been seen, was in favour of a policy of con-
cessions as early as April r9r9. The British, he explained to Gertrude
Bell in September r9r9, had to maintain control of the Suez Canal,
the Nile waters, the army and the police. Otherwise, Egyptian
ministers should be left to carry on as best they could; mistakes they
would no doubt make, 'but they have the right, as they claim, to a
fair trial'. Such concessions, he thought, would win the majority of
the country to the British 5idg.lrr Chyton, we observe, shared with
the Milner Mission the fallacy that concessions to Zaghlul and other
members of the official class were demanded by 'the majority of the
country', would redound to their benefit, and would thus promote
among them gratitude to Great Britain. The following decades showed
that,
as was only natural, British unpopularity in the country at large
increased in proportion to the magnitude of British concessions.
With the passage of time, Clayton seems to have favoured con-
cessions greater than he was prepared to envisage in r9r9. Comment-
ing on Hayter's memorandum of 5 June rgzr which has been dis-
cussed above, he asked why it was necessary for the British to station
an army in Egypt. For, after all, did they not have troops in the Sudan
and in Palestine which could be moved to Egypt if an international
crisis threatened? Again, a small British force in Egypt merely created
hostility in the country. Egyptians, moreover, were not so foolish as
to attack either the Canal or foreigners in the country. Why then
not withdraw British troops entirely and thus both save money
and disarm Egyptian hostility? And if such a policy could not be
r47
 THE CHATHAM HOUSE VERSION
embodied in a treaty, then let it be put into force by a unilateral
proclamation.2ro
The views of the British advisers were widely shared among
Allenby's subordinates at the residency. One specimen of their
opinions may perhaps suffice. In a letter of r October rgzr to Sir
William Tyrrell at the Foreign Ofrce, Walford Selby, then first
secretary at the residency, declared that an agreement with Adli, if
it constituted anything less than full satisfaction of Zaghlul's pro-
gramme required to be imposed by the British with just as much
force as they would need to impose their own desiderata. Such en-
forcement was not feasible, and therefore 'we should take the oPPor-
tunity proffered by the negotiations with Adty Pasha to "get out"
on the best terms we can'. There need be no fear that foreign troops
would replace British in Egypt. British naval preponderance in the
Mediterranean would prevent France or Italy from intervening on
behalf of 'fat profiteers in Egypt, who are no more good to their
country of origin than to that of their adoption'.tl?
Allenby himself seems to have generally accepted the policies can-
vassed by his subordinates at the residency, and by the advisers who,
it must not be forgotten, had been selected by him. Transmitting
Hayter's memorandum of 5 June r9zr, mentioned above, he informed
the Foreign Office that Hayter's views were worthy of serious con-
sideration. They were in general accord with Milner's policy'and I see
no reason why the adoption of something on the lines he suggests
should not be attended with ultimate success'.2l8 He also approved
Clayton's endorsement of Hayter's proposals: 'I am', he noted on
Clayton's memorandum of 8 October, 'in general agreement with the
views of Sir G. Clayton.'2ro
In the autumn of t9zr, when talks with Adli were still going on
but when hope of agreement was becoming dim, Allenby, who was
then in London, attended a meeting of a cabinet subcommittee dealing
with the situation in Egypt' He told the ministers that there was a
prospect of disorders by the Zaghlulists, and Zaghlul himself would
probably make some movement which would justify his arrest and
banishment. If firmness were shown, Allenby declared, a moderate
government could be formed and could maintain itself. Such had been
the case when the rising of r9r9 was suppressed, until Lord Milner
resuscitated Zaghlul who at that time was moribund. He ended by
saying that some form of independence would have to be conceded to
Egypt and the word protectorate abandoned.z2o What is of interest
r48
 SA,D ZAGHLUL AND THE BRITISH
here is not so much Allenby's version of what had followed the r9r9
rising, but the clear indication of his ability to form and maintain in
power what he called a 'moderate' government. Ife was equally
unambiguous at a cabinet which he was invited to attend on 4
November following. Though he personally preferred more liberal
terms than were being ofiered (and up to then, we must remember,
the cabinet had not authorised Curzon to concede diplomatic repre-
sentation to Egypt), Allenby affirmed that Adli could carry on with
the 'firm support'of the British government.22l I{e returned to Egypt
shortly afterwards. In a telegram of rz November he reported that
both the sultan and Tharwat Pasha were in favour of adopting
without delay a firm policy.z28 A few days later, reporting that con-
trary to his expectations Adli was likely to resign, he yet told Curzon
that Tharwat was ready to form a Ministry and to fight Zaghlul to a
finish and was confident of success.ms
This telegram Allenby sent on 18 November. But on the previous
day he had sent another telegram quite at variance in its tone and
implications with the language which the high commissioner had
held to ministers in London, as well as with his recent reports from
Cairo. This telegram of 17 November informed the Foreigrr Office
that the adviser to the interior, the acting financial adviser, the
adviser to the ministry of education and the acting judiciat adviser
were 'unanimously' agreed that a decision by the cabinet which did
not admit the principle of Eglrytian independence and which main-
tained the protectorate entailed 'a serious risk of revolution' and
'complete administrative chaos rendering government impossible'.
These officials warned that unless 'substantial' satisfaction were
given to the expectations which Egyptians had legitimately formed
on the basis of British policy in the past two years, it would be im-
possible to form a Ministry. The advisers, though somewhat alarmist
in their language, were no doubt right to speak of expectations having
been aroused among Eg'yptians by successive official British pro-
nouncements. But they also went on to discuss their own state of
mind and to hint that unless the British government adopted a
particular policy they would refuse to carry on. They had, the tele-
gram went on, proceeded for the past two years'in the belief that
policy of liberal concessions would be adopted and have undoubtedly
given this impression to various ministers and others with whom they
have been in contact'. If a contr4ry policy was adopted, they felt
bound to warn, they could not expect 'to retain the confidence of
r49
 THE CHATHAM HOUSE VERSION
Egyptian ministers or be able to render useful service in the future'.
It is legitimate to wonder whether in giving the impression to
Eg5rytians that 'a policy of liberal concessions'would be adopted by
the British government, these officials did not exceed their function;
for, after all, they had no authority to define or expound British
policy. The telegram is also surprising on other counts. As Curzon
pointed out in his answer to this telegram on the following day,
Allenby knew (and could have told the advisers) that in the negotia-
tions with Adli the British government did admit the principle of
Egyptian independence and was certainly not trying to maintain the
protectorate which, months ago, it had declared not to be a satisfac-
tory relationship between Egypt and Great Britain. What then
prompted the dispatch of this telegram? A clue might lie in the
sibylline hints which the advisers proceeded to throw out' If a
'liberal' programme were apProved it could be, they said, elaborated
on the spot and a Ministry formed to carry it out even if no official
convention can be signed by an Egyptian minister which would
admit that programme as full satisfaction of Egyptian claims.zz4
The meaning of these riddles was to apPear shortly. On 5 December
Allenby sent a telegram suggesting that the protectorate should be
abolished and that the other British proposals which Adli had re-
jected should be implemented unilaterally, that is without the
Egyptian quid. pro quo which was of the essence of the whole nego-
tiation. This then is what the advisers meant by their talk of a liberal
programme which could be implemented even if no Egyptian minister
would accept it as full satisfaction of the Egyptian claims. What
virtue they saw in this arrangement remains obscure. At any rate,
Allenby's suggestion was not well received at the Foreign Ofrce. In
a minute which totally departed from his usual views, Murray
expressed his dislike of the proposal. 'Lord Allenby's proposal', he
wrote, 'amounts in fact to giving away all that the cabinet were with
difrculty induced to concede in the hope of concluding an agreement
with Egypt, and receiving nothing in return except the formation of
a government of whose stability and good faith we should have no
guarantee.' The arrangement would set up a system of 'political
blackmail'. Sir Eyre Crowe agreed with Murray; if such a proposal
was agreed to, he minuted on 6 December, 'we should be stultifying
ourselves absolutely'. Curzon also declared himself opposed to 'pre-
cipitate action', and on 8 December a telegtam rejecting his proposal
was sent to Allenby.zrs
r50
 SA.D ZAGHLUL AND THE BRITISH
Allenby returned to the charge a few days later. In a telegram of
rr December he again proposed the unilateral abrogatiou of the pro-
tectorate, this time producing new arguments in support. The British
government, he now affirmed, could not expect treaty advantages in
return for this concession, since the protectorate had taken away
something which the Ottomans had conceded, 'and nothing is more
resented in Egypt today than this backward step on the part of
Great Britain'.
At the Foreign Office Murray, still constant in opposition, forth-
rightly minuted: 'I do not think that H.M.G. should be asked to
provide Lord Allenby with a provisional pledge of this kind which he
could then proceed to hawk round amongst potential Egyptian prime
ministers.' Crowe was even more outspoken: 'It is difficult to believe',
he minuted on 12 December, 'that this telegram emanated from the
same Lord Allenby who when in London spoke so viotently and so
consistently against the Milner arrangement and claimed with such
confidence that if supported by H.M.G. he would have no difficulty
in giving effect to the policy of maintaining our position in Egypt.'
'I can only surmise', he went on, 'that the telegram has been drafted
and submitted to him by one of the officials who have always favoured
the undiluted Milner doctrine and who now want to make it impossible
for H.M.G. to follow any other.
'Mr Murray is right in suggesting that the line now recommended
by Lord Allenby is incompatible with the course approved, if not
advocated by himself here'. Crowe then went on to suggest that
Allenby should be told that 'the policy laid down and so clearly
explained cannot be suddenly reversed as a result of his own complete
uolte-face', and that he was expected to take the necessary action to
carry out this policy.2z8
Before an answer in these terms could be sent, two other telegrams,
both dated rz December, arrived from Allenby. They made no refer-
ence to his telegram of the previous day, but reported that Tharwat
was prepared to form a Ministry, that he did not expect an immediate
abolition of the protectorate, but that he hoped this to become
possible in the near future. What he was proposing was a return to
the conditions which had obtained before r9r4, and that relations
between Egyptian ministers and the British representatives should
be the same as those which existed in the time of Kitchener and his
predecessors. Tharwat seemed to go even further, and to agree that
the director-general of the ministry of foreign affairs, who became
I5I
 THE CHATHAM HOUSE VERSION
after r9r4 a British ofrcial, should continue to be British. Meanwhile,
he wished to take note of the 'undertaking' of the British Sovern-
ment to terminate the protectorate. This development seemed to
make it no longer necessary to take a decision on Allenby's proposal
of rr December, but a telegram of 15 December, drafted by Curzon
himself, nevertheless insisted on telling the high commissioner 'that
your suggestion that H.M.G. should pledge themselves to ask Parlia-
ment for the abolition of the protectorate in the hope of obtaining an
Egyptian Ministry would have been quite unacceptable. Such a
course', the telegram went on, 'would have been inconsistent with the
decision of which H.M.G. arrived at after consultation with Your
Lordship and largely uPon your advice.' To this telegram Allenby
returned no answer. Indeed, for a whole month he preserved utter
silence regarding his proposal of rr December.
Tharwat, as has been seen, proposed to take note of the British
'undertaking' to abolish the protectorate. This was an attempt to
commit the British government to something which neither Milner
nor Curzon had conceded. The British negotiators had been prepared
to give up the protectorate in exchange for a treaty. It was out of the
question to acquiesce in Tharwat's language and give up what had
been for two years so strenuously defended' A telegram was there-
fore sent to Allenby, asking him to remind Tharwat that His Majesty's
Government had given no 'undertaking' to terminate the protec-
torate but had only ofiered to do so as part of a contract.221
Following his telegrams of rz December Allenby remained silent
for a week on the progress of his negotiations. When he broke his
silence it lvas to report on 20 December that Tharwat had not yet
been able to form a Ministry, that he was prohibiting a public meeting
called by Zag;hlul, and that if he made trouble the high commissioner
proposed to deport him.z2t The following day Allenby announcedthat
the Zaghlulists were fomenting trouble and that he was prohibiting
Zaghlul from participating in politics.z2s Two days later, he announced
the arrest and impending deportation of Zaghlul. In this telegram
Allenby declared that Adli had expressed satisfaction at this step.z8o
No wonder, since the removal of Zaghlul by the British conveniently
removed his main and most formidable opponent, without his having
to incur obloquy for it. Tharwat too, as Allenby reported in a tele-
gram of z7 December, was'strongly in favour' of Zaghlul's deporta-
tion, the order for which he was shown in advance.28l It thus seems
fairly clear that Zaghlul's deportation to the Seychelles was a strata-
r52
 SA.D ZAGIILUL AND THE BRITISH
gem concerted by Allenby with some Egyptian politicians, a strata-
gem which he sprang as much on London as on Zaghlul himself, and
that Za6hlul's mischief-making was merely its convenient pretext.2sr
Having concerted with AdIi, Tharwat and their friends Za6hlul's
removal, Allenby now proceeded to concert with the same party the
coercion of the British government. In his telegram of e7 December,
just mentioned, Allenby stated that Tharwat rvould 'definitely' agree
to form a Ministry, but that he thought it judicious to allow a month
or so to elapse before doing so, in order that the repression of the
Zaghlulists might produce its full effect. It turned out however that
Tharwat was not as definite in his intentions as he had represented
him to be. For on 12 Januaxy 1922 Allenby abruptly recurred, after
rr December previous. He admitted
his long silence, to his proposal of
that the British government had considered unacceptable the uni-
lateral abrogation of the protectorate, by means of which he had
hoped to obtain a Ministry. This hope however, Allenby declared,
was now a certainty, and he was therefore reverting to his proposal,
inconsistent as it was with the decision of His Majesty's Government;
it was the only course which he saw his way to pursuing. This was no
doubt the truth, since by deporting Zaghlul and eagerly pressing
Tharwat to form a Ministry, Allenby had put himself in the latter's
power. He admits as much when he declares, in the same telegtam,
that his proposal was the result of 'exhaustive negotiations with
Sarwat Pasha and his immediate adherents. They, on their part', he
went on, 'have been in contact with wider circles and Adly Pasha has
been in close touch and lent valuable and disinterested assistance.'888
Allenby's tone, in this telegram, was extremely pressing. No other
policy, he insisted, rvould serve to pacify Egypt or maintain 'the
friendly disposition of those political elements in Egypt, who, through
times difficult enough for themselves have helped us and dealt
straightforwardly with us'. The alternative to his proposal was a
prospect of alternating outbreaks and repression, ending either in
complete capitulation or in the annexation and arbitrary govern-
ment of a bitterly hostile country. And Allenby ended his telegram by
saying that his proposals had the 'solid and whole-hearted support
of my advisers without the least divergence', and urgently requesting
an early reply by telegram.88.
This telegram took the Foreiga Office utterly by surprise. They had
received no answer to their telegram of r5 December in which
Allenby's proposals had been declared unacceptable. Also, for a
r53
 THE CHATHAM HOUSE VERSION
month and more, they had been led to think that Tharwat was ready
to form a Ministry and resolutely fight Zaghlul. They had been given
not a hint that his price would be the unilateral abrogation of the
protectorate. In the lengthy and vehement apologia which Allenby
prepared when he wi$ summoned to Ipndon at the end of January
tgzz,he does admit that he had been'perhaps too sanguine'in fore-
casting, when the talks with Adli broke down, that it would be
possible to form 'a Ministry of some sort'. In this dispatch he also
tries to justify, thus implicitly admitting the fact, his complete silence
for a whole month over his negotiations with the Egyptian politi-
cians. During that month, he writes, 'I had been engaged in preparing
from the fluid elements of wavering opinion and fluctuating passion
a momentarily stable situation. . . . I confess that the elements were
not so manageable as to render it possible for me to present my plan
gradually; nor', he adds, 'would an incomplete and tentative plan
have merited sufficiently the consideration of His Majesty's Govern-
ment.' In this dispatch he also asserts that it was Zaghlul's agitation
which, in the end, prevented the formation of a Ministry, and that
his deportation created a new opportunity in which 'the use of a new
concession would produce not only a Ministry, but effects much more
far-reaching for the well-being and contentment of Egypt and for the
relief of His Majesty's Government from a harassing perplexity'.r46
Of this, again, there is no indication in his telegrams at the time. On
the contrary, as has been seen, the impression given then was of a
move concerted with Tharwat in advance, which was welcomed by
him as a prelude to his forming a ministry: Allenby never reporting
that this would be at the price of a new concession.
Surprising as Allenby's telegram of rz January was, yet both
Murray and Lindsay were ready to recommend acceptance of his
proposal. In a retreat from his uncharacteristic and momentary
firmness, Murray minuted on 13 January: 'Allenby's policy involves a
risk. Sarwat might try to rush a decision on reserved subjects and
resign if his wishes are not met. But I believe this risk is less great
than that involved in a rejection of Lord Allenby's policy.' Lindsay
likewise had no hesitation in preferring it to the possibility of govern-
ing Egypt without Eglptians and added that the Department could
only endorse Allenby's warning. It was left to Crowe to voice some
disguiet over Allenby's policy. 'I think', he wrote in a minute also of
13 January, 'Lord Allenby is to blame for trying to rush H.M.G.
in this way.' If his policy were followed 'we lose all right and all
r54
 SA.D ZAGHLUL AND THE BRITISH
power - except the actual use of military force.' He deplored this 'and
would fain believe that such a surrender ought not to be necessary',
but he declared himself not to be in a position to oppose 'those who
speak with intimate knowledge of Eglptian conditions and the
Egyptian psychosis'.sso
It was not only Crowe who did not feel knowledgeable enough or
confident enough to resist Allenby. The foreign secretary himself,
who understood the question much more thoroughly than Crowe, who
liad himself drafted the telegram of r5 December telling Allenby that
his vieu's were unacceptable, now showed not the slightest wish to
oppose the high commissioner. In fact he made himself Allenby's
advocate in the cabinet. In a cabinet memorandum of 16 January,
he declared that 'grave' consequences would ensue if Allenby's policy
were rejected. Furthermore, he argued, the British government were
not themselves taking responsibility for this policy, only for recom-
mending it to Parliament; and he went on to praise Allenby for
having successfully prevented the Egyptians from attaching as a
condition to their cooperation the return of ZaghlulPs? There is
nothing in the papers to explain Curzon's aolte-face. It remains a
pluzzle, as difrcult to account for as other erratic decisions which
punctuate the last years in office of this intelligent and sagacious man.
When the cabinet met on 18 January, Curzon pressed strongly for
the approval of Allenby's policy. He went as far, he told Allenby in a
personal telegram, as to back it with a 'threat of personal resigna-
lion'.288 This threat he obviously did not make good. The cabinet
refused to be persuaded, taking the view that if the protectorate
were abolished, there would then exist no sanction 'to compel
Eg'yptian government to meet us in any particular way except the
presence of British forces in the country, which is equally our sole
effective guarantee nowr.88e They did not think the matter as urgent
as Allenby and Curzon represented, and decided to ask the high
commissioner to send Clayton and another ofrcial to London for
consultations.t{o
Allenby rejected this suggestion categorically. The summoning of
the officials to London would serve nothing and would undermine his
position, he declared in a telegram of zo January. If his proposals
were rejected he could rely on the support of no Egyptian; but, on the
other hand, he affirmed 'that my proposals if immediately accepted
will prove basis of a lasting settlement in Egypt'. fn a separate, 'most
urgent' telegram, he informed Curzon that the situation brooked no
155
 THE CHATHAM HOUSE VERSION
delay and that if his advice were not accepted he would resign.rrr
The cabinet met on z3 January to consider this threat of resignation.
They did not feel disposed to give in to Allenby's threat and Curzon's
urgings. They appointed a committee to consider the position created
by this threat to resign. It consisted of the prime minister, the lord
privy seal (Austin Chamberlain), the chancellor of the exchequer
(Robert Horne), the lord chancellor (Birkenhead), the foreign secre-
tary (Curzon), the colonial secretary (Churchill), and the president of
the board of education (H. A. L. Fisher).il'
This committee considered the draft of a telegram which was sent
to Allenby the following day, z4 January. The telegram began by
declaring that the government were 'most anxious . . . to retain
advantage of your services to which in present critical situation they
attach highest value'. But it went on to say that if the cabinet
accepted Allenby's proposal they might be exposed to 'the just
charge of having abandoned our main position without safeguards for
the future'. If the Eglptian ministers, the telegram pointed out,
were agreed that Britain should have a special position in Eg:ypt,
then they should experience no difficulty in giving the explicit
assurances for which the cabinet was asking't{8
To this Allenby's prompt rejoinder, in a telegram of z5 January,
was that if his advice were not taken, all hope of 'a friendly Eglpt
in our time' would be lost. He was still 'confident of success', but
there should be no further delay. Once more he ofiered his resigna-
tion, and his grounds are significant and revealing. 'Though I have
divulged no secrets', he wrote, 'my opinions are well-known here and
if advice I have offered is rejected I cannot honourably lgpxin.'t{{
Allenby is not only saying that his views diverge from those of the
government; he is also openly admitting that he had compromised
himself by making his own personal policy publicly known, and
encouraging certain expectations. Such behaviour on the part of
Wingate, for instance, would have been censured as indiscreet and
improper. In the event, the 'Bull' was able to overawe the foreign
secretary and the cabinet, and he had his way. To bring them to a
proper state of mind his threat to resign was swiftly followed, the
next day, by a private telegram from Amos to Murray intimating
that the advisers would resign if Allenby's policy were not accepted.trt
At the outset the cabinet were not disposed to give in to the high
commissioner. They held two meetinp, on 26 and 27 Jafi:arry, and
decided that Allenby should be recalled home to report, and that on
r56
 SA.D ZAGHLUL AND THE BRITISH
his arrival the question of accepting his resignation should be
considered.2a8A White Paper was even put together and actually set
in type to document the government's case against him.2.? A tele-
gram was sent to him on z8 January asking him to come home and
explain the 'violent metamorphosis' in his views and the ultimatum
with which he had seen fit twice to confront His Majesty's Govern-
ment.2{8 But this belligerence did not last long. Armed with a long,
justificatory dispatch, and accompanied by Amos and Clayton,
Allenby descended on London in the middle of February. His con-
frontation with the government took place at two crucial meetings on
the morning and on the evening of 15 February. Present at the meet-
ings were Lloyd George and Curzon attended by Sir Maurice Hankey
and Sir Edward Grigg, and Allenby attended by Clayton and Amos.
Allenby proved adamant and obdurate, offering his resignation on
both occasions. But in the event Lloyd George shrank from accepting
it, probably fearing a debate in Parliament in which Allenby - a
peer - would no doubt deliver a damaging attack on the incompetence
of the coalition in its handling of Egyptian affairs. Nlenby's coult
d.'itat had, succeeded. Towards the end of the evening meeting, when
Allenby was threatening yet again to resign, Lloyd George begged him
to be patient and wait for five more minutes. It was in the end agreed
that a committee composed of Murray, Grigg and Clayton would
meet on the morrow and compose a draft declaration acceptable to
Allenby and to the government.srg The draft declaration conceded
all that Allenby had demanded. A face-saving phrase was tacked at
the end to the efiect that pending the conclusion of agreements
relating to the reserved subjects 'the status quo in all these matters
shall remain intact'. At the cabinet held on 16 February to consider
the draft, much was made of this sentence. Sir Edward Grigg, the
prime minister said, had drawn his attention to the fact that the
term'status quo' was used without further definition, and that this
would give the high commissioner the widest possible powers; so
much so that he could insist on maintaining every power and privilege
which the British then possessed. In fact, Lloyd George assured his
colleagues, this clause would retain for the British government the
powers it had exercised under the Granville Declaration together
with those superadded by the declaration of the protectorate.s6o
Needless to say, this clause could never bear the wide construction
which Lloyd George attempted to erect upon it. Nor was it ever
mentioned or invoked subsequently.
r57
 THE CHATHAM HOUSE VERSION
Allenby got his declaration; the basis of a lasting settlement it was
to be. Sultan Fu'ad became King Fu'ad, Tharwat became prime
minister, and Egyptian independence was proclaimed. Zaghlul was in
exile and his rivals triumphant. fhey would not remain so for long.
For he could not be kept indefinitely in exile and whenever he re-
turned he could always denounce Allenby's declaration and its
reserved subjects as unilateral and therefore not binding on Egypt;
and he would be right. In addition, another feature of Allenby's
proposal was to consummate Zaghlul's triumph and eventually lead
to the high commissioner's resignation. When Allenby originally sent
his scheme to London it included a paragraph which said: 'As regards
internal administration of Egypt. His Majesty's Government will
view with favour the creation of a Parliament with right to control
the policy and administration of a constitutional, responsible govern-
ment.'25r Such a sponsorship of constitutionalism and of parliamentary
institutions had formed part of Milner's proposals. When Allenby was
told of them in January rgzr, he had immediately declared that he
did not consider it a British interest to require representative insti-
tutions and ministerial responsibility in Egypt.z6z Again, reporting
shortly aftenrards the sultan's view that Milner's proposals would
merely lead to intrigue, Allenby added: 'I think that this view is
worthy of consideration.'i58 When, therefore, we see Allenby a year
later recommending what he had objected to a year earlier, we may
say that in this respect at least his opinions had indeed undergone
a 'violent metamorphosis'. Nor is the reason in doubt. He was com-
mitted to, and compromised with Tharwat and his friends, who
hankered after parliaments and constitutions, either out of convic-
tion or in order to diminish Fu'ad's Power and increase their own'
Allenby's proposal did not figure in the declaration of z8 February
rgzz which contented itself with saying that the future form of
government would be left for the people and the sultan to determine.
The declaration was a victory for Tharwat and his friends. Much as
he disliked them and their constitutional ideas, Fu'ad had no alter-
native but to allow them to form a government pledged to constitu-
tionalism and parliamentary government. Fu'ad tried hard to avoid
a constitution, but could not withstand Allenby who continued to
press for it. After more than a year's delay Fu'ad at last granted a
constitution providing for elections, a parliament and ministerial
responsibility. But he was determined to punish Tharwat and his
friends who were now organised in the Liberal Constitutionalist Party.
r58
 SA.D ZAGHLUL AND THE BRITISH
He chose to do this by alying himself to Zaghlul. After his first
exile Zaghlul the girondist, the jacobin even, wils on very bad terms
with Fu'ad. With Tharwat in power, however, Zaghlul and Fu'ad
became allies. The king's association with the Zaghlulists was, Allenby
stated in a dispatch of May 1923, deliberate and undisguised. Zaghlul-
ist newspapers were receiving large subsidies from the palace, and the
king's support was responsible for the recrudescence of Zaghlulist
strength in the country.r6r Here was a situation similar to that of
r9r8 when Fu'ad and Zaghlul each hoped to use the other as a
catspaw. Wafd, and palace now sang each other's praises. The king
even took the WaJd,'s part, and in a note to Allenby who was pro-
testing about the continued assassination of Englishmen, his prime
minister Yahya Ibrahim coolly said that this was the result of not
paying heed to the desires of the majority, meaning the Wafd..'66
Shortly before Zaghlul's return to Egypt from his second exile, in
September rg23, a palace official told an agent of the Secret Intelli-
gence Service that Fu'ad had fully made up his mind to give his un-
qualified support to the Zaghlulists.z60 He also seems to have sent a
message to Zaghlul through his man Hasan Nash'at to the efiect that
he would be glad if Zaghlul would become prime minister after the
forthcoming elections.267 In these elections which took place at the
end of 1923, the palace exerted its influence on behalf ol the Wald258
and Zaghlul, the hero of the people, who claimed to speak on behalf
not of a party but of the whole nation, was returned with a sweeping
majority. Fu'ad seems to have believed that he could, even so, im-
pose his own nominee as prime minisfgl.rao He was quickly disabused.
Zaghlalbecame prime minister and inaugurated the three decades of
parliamentary misgovernment in Egypt when, as Cromer foretold,
'under the specious title of free institutions, the worst evils of personal
government would reappear'.260 As for Allenby, he had not long to
wait for what Lord Lloyd has called'the dreadful aftermath'.tei At
the end of 1924, the sirdar, Lee Stack, was murdered in cold blood in
a Cairo street, and Allenby, with trumpets and proclamations, had
to demolish the basis of his lasting settlement. His brusque methods,
successful when practised on Lloyd George, did not now please the
foreign secretary, Sir Austen Chamberlain, who thought they were
'very like the action of a little boy who puts his thumb to his nose
and extends his four fingers in a vulgar expression of defiance and
contempt'. He sent Nevile Henderson to Cairo to expostulate with
him, and Allenby, taking offence, resigned in a huff.tcg
r59
 6

The Genesis of the Egyptian

Constitution of ry23

During the last year or so of Fu'ad's life, Sir David Kelly recounts in
his memoirs, the king of Egypt, old and sick, would amuse himself
by giving audiences to the British diplomat who was then acting high
commissioner at Cairo, in which he expressed himself with great
frankness. The king, according to Kelly, showed great contempt for
the intellectual qualities of the British: 'He said' - as Sir David
reported him -
he understood the Italian, French and German characterc thoroughly,
but had given up trying to make any sense out of the actions of the
British. He rvas especially bitter against the British for having 'imposed
a constitution on the Belgian model' on the Eglrytians, who were com-
pletely unsuited for parliamentary government on those lines. Our
interest in Egypt, he said, was purely strategic; why had we not been
content to leave him to run the country, as he well knew how to do, if
we would only cease interfering, providing that as his part of the bargain
he played up on all matters affecting our strategic interest and empire
communications?r

Seven years or so before these audiences, the United States minister

gave an account of Fu'ad's opinions which also reflected his bitter-
ness towards the British, and in particular towards Allenby during
whose time as high commissioner the EgSrytian constitution which the
king, according to Kelly, so disliked, had been promulgated. Fu'ad,
so the American minister reported, found himself beset with diffi-
culties. They were due 'first, to the passion of the small minority of
politically-minded Egyptians for party-politics; second, the desire
of his ministers to get rich too fsicl] quickly; and third the difrculty
of having always to placate and consider the British'. The king then
went on to discuss Allenby. 'Iord Allenby', he said, 'had the true
r60
THE GENESIS OF THE EGYPTIAN CONSTITUTION OF I923
soldier-mind and was lacking in comprehension'. He complained,
the American minister went on, 'that even though Lord Allenby
knew very little French he would never have an interpreter, the result
being that he frequently left the king, who does not speak English,
seeming to have understood what His Majesty had said, and only
later would it transpire that he had not understood at all'.2 Allenby,
in fact, knew French quite well,8 and Fu'ad's remarks are therefore
significant in disclosing the king's reaction more to Allenby's mind
and character than to his linguistic attainments.
Fu'ad, then, seemed to think that those British with whom he had
to deal did not understand Egypt, and that Allenby in particular
excelled in blundering obtuseness; it is also clear that the king's
resentment was due to his belief that without British insistence there
would have been no constitution to give their opportunity to piddling
and interested politicians, and make his own life a misery. Fu'ad's
lamentations should not move us overmuch, for if the constitution
had been pressed on him by Allenby, it was because Allenby was
high commissioner; Allenby became high commissioner because Sir
Reginald Wingate had lost the confidence of his superiors in Iondon;
the loss of confidence was the consequence of agitation in Egypt;
and the hidden instigator of that agitation had been Fu'ad himself.
But whatever sympathy Fu'ad's predicament arouses, it is
interesting to notice that his judgment was exactly identical to that
of Allenby's successor in Egypt, for it was Lord Lloyd's view that the
British had 'forced' the parliamentary regime upon the country 'in
the face of the King's wishes'.4 To elucidate how this came about will
throw some light on the subsequent vicissitudes of constitutional
and representative government as it was attempted in Egypt between
t9z4 and t952.
When Lord Allenby compelled Lloyd George and his colleagues in
February rg22 to agree to his solution of the Egyptian problem, he
promised them that his proposals'if immediately accepted, will prove
the basis of a lasting settlement in Eg'ypt'.6 They proved to be nothing
of the kind, and even Allenby's three remaining years as high com-
missioner proved to be full of unsettlement, agitation and unrest,
culminating in the Sirdar's murder and the high-handed treatment to
which the high commissioner subjected the Egyptian government; a
course of conduct which lost him the confidence of the foreign secre-
tary and led to his resignation. Thus, it may be said that Allenby's
solution was really no solution. We may go further and say that it
r6r
 THE CHATHAM HOUSE VERSION
was this particular solution which was the breeding-ground of later
difficulties; that these later diftculties were part of the high price
with which Allenby purchased the illusion of a 'lasting settlement'.
The Declaration of z8 February rg22 pvtported to give Egypt her
independence, with four reservations which generally concerned the
interests of Great Britain and the British empire. The line of policy
behind the Declaration is intelligible and superficially attractive.
Britain, so the reasoning went, had certain interests in Egypt which
were the real cause of her presence in the country. From r88a to r9r8
these interests were protected by Great Britain actually occupying
Eglpt and closely supervising its administration. But the events of
r9r9 and of the following years had shown that the Egyptian official
classes at any rate had ceased to acquiesce in British control, and
without their acquiescence Egypt was ungovernable. The good
government of Egypt, however, was not a direct British interest; if
the Egyptian official classes wished to resume the government of
their country, the British could have no objection, provided Egypt
was compelled to recognise and secure British interests. Hence the
Declaration and its four reservations. But if this was the reasoning
behind the Declaration - and only some such reasoning justified
Allenby's claim that it provided the basis of a 'lasting settlement' -
why then, as Fu'ad asked in his conversations with Kelly, not leave
well alone and be content to see Egypt governed by a king in the
same manner as it had been governed by the khedives? Or if it be
argued that Egypt under British control had irrevocably changed
from what it used to be under Sa'id and Isma'il, why not leave
Egyptians themselves to deal with this change as best they could?
Why should Allenby take it upon himself, by sponsoring a constitu-
tion, officiously to pose as the midwife of history?
The answer is that in seeking to persuade London that his policy
was the only feasible one, he had had to make sure of some Egyptian
support, and that this committed him in turn to support a constitu-
tion. For the Egypt which Allenby had to govern was not a crown
colony, it was a protectorate with its own indigenous government,
and the high commissioner could not govern unless he could find
Egyptians willing to take ofrce as ministers. By the beginning of
rgzz things had come to such a pass - the consequence of combined
mismanagement by Allenby, Milner and Lloyd George's government
- that in order to escape from an impasse Allenby had to strike a
bargain with some Egyptian politicians. He confesses as much when
16z
THE GENESTS OF THE EGYPTTAN CONSTITUTION OF 1923
he writes to Curzon that his proposals are 'a result of exhaustive
negotiations with Sarwat Pasha and his immediate adherents. They,
on their part, have been in contact with a wider circle, and Adly Pasha
has been in close touch, and has lent valuable and disinterested
assistance'.c The support of these politicians was indispensable to
Allenby, but he had to pay for it by supporting them in his turn with
all the prestige and influence of the high commissioner. Thus he found
himself compelled to identify the residency with a particular Egyptian
faction, and consequently to alienate the rivals and enemies of this
faction, namely Zaghlul and the king. Allenby found himself com-
pelled to do this in order to get his Declaration. The Declaration was
a voluntary unilateral abandonment of the British position in Eglryt;
being unilateral, it secured no concession in return; being obtained
at the price of supporting one faction and alienating its enemies, it
made British interests in Eg'ypt the perpetual sport of Eg'yptian
factions; and having foresworn control over Egyptian politics, the
Declaration made it difrcult and at times quite impracticable for
Great Britain to neutralise the factional disputes in which her
interests became a pawn. This was the ruinous cost of Allenby's
policy which led his successor to write in rgzT:'We have magaitude
without position: power without authority; responsibility without
control'.? This, true as it was when it was written, became even truer
as the years went by.
The Declaration of z8 February, then, committed Allenby to
'Sarwat Pasha and his immediate adherents'. What this commitment
entailed may be gathered from a paragraph in the draft Declaration
which Allenby sent to London. This paragraph would have had the
British government 'view with favour the creation of a Parliament
with right to control the policy and administration of a constitutional,
responsible government'. This paragraph was amended in London,
and the Declaration, as finally published, did not commit the British
government to the promotion of constitutionalism in a kingdom on
which, by that very instrument, they were bestowing independence.
But the absence of constitutionalist manifestos from the Declaration
of z8 February did not alter the fact that Thanpat and his friends
were now in power, supported by the great prestige and influence of
the high commissioner. They would naturally try to preserve and
extend their power. In this enterprise they had to guard against two
enemies: Zaghlul with his Wafdist organization and his power over
the mob, and the king who, imbued with the autocratic traditions of
r63
 THE CHATHAM HOUSE VERSION
his house and coming late in life and unexpectedly to the throne
was all the more rapacious for power and impatient of any who might
claim to share it with him. In arguing that Tharwat and his friends
were primarily concerned to enjoy the power which their collabora-
tion with Allenby had brought them, we do not mean to imply that
they had no other purpose in politics. Tharwat and his associates
did, after all, stand for constitutionalism, the rule of law and limited
government; among them were to be found the representatives and
heirs of the pre-war Umma Party from which Cromer had hoped and
expected so much. A sentence in the speech which Adli Yakan
delivered on 3o October tg22 at the first general meeting of the
Liberal Constitutionalist Party - which Tharwat founded with his
friends - may be taken to express their political hopes and ideals.
'The constitutional regime', he said, 'is the only form of government
worthy of a nation such as ours which is steeped in civilisation'.8 ff,
however, we remember the extremely cavalier manner in which the
Liberal Constitutionalists later treated the constitution, we may
fairly say that they insisted on a constitution in rgzz because it was
then a convenient and useful instrument for limiting Fu'ad's power,
and consolidating their own.
Their cooperation with Allenby seemed at first to have all the
desirable results. Allenby had taken care to exile Zaghlul and his
supporters from Cairo before coercing his own government into
issuing the Declaration of z8 February; and if the Declaration did not
contain the constitutional manifesto which Allenby had designed,
yet the very fact that Allenby was supporting Tharwat and his
friends was enough, in the circumstances, to compel the king to give
in to their desire for a constitution. The king, therefore, in appointing
Tharwat chief minister on r March 1922, reqtJested him to prepare a
draft constitution, and Tharwat accepted office on the specific
understanding that the constitution would ensure the responsibility
of ministers to parliament. On 3 April, the council of ministers
approved a memorandum by the prime minister setting up a constitu-
tional commission composed of thirty members. The first paragraph
embodies the terms on which Tharwat took office and deserves
quotation:
The Royal Command to form a ministry which was addressed to me
[the memorandum declares] alluded to His Majesty's wish to bring about
cooperation between the nation and the government by means of a con-
stitutional regime, and charged the Ministry rvith the preparation of a
,64
THE GENESTS OF THE EGYPTTAN CONSTTTUTTON OF rg23
draft project. 'Ihe answer of the ministry to the Royal Command was to
the effect that it would immediately put in hand the preparation of a
draft constitution in conformity with the principles of modern public
Iaw, and that such a constitution would lay down the principle of
ministerial responsibility, thus affording to the representative assembly
the right to supervise future political activity.e

The Commission of Thirty which Tharwat appointed was presided

over by Husain Rushdi Pasha. It included four ex-ministers, nine
members of the Legislative Assembly which was prorogued in r9r4,
never to meet again Shaikh Abd al-Hamid al-Bakri, head of the
Sufi orders, Shaikh Muhammad Bakhit, an ex-mufti of Eg1pt, five
Copts including the Coptic bishop of Alexandria, one Jew, representa-
tives of the law, of commerce and of the Beduins, the governors of
Cairo and Alexandria, the secretary-general of the counoil of ministers,
and the permanent secretary of the ministry of finance. Of those
who had played a part in recent political events, Abd al-Latif al-
Mukibbati presumably represented the Nationalist Party; Muhammad
Ali (Alluba) and Abd al-Aziz Fahmi had first cooperated witll
Zaghlulin rgtg-zo, had broken with him over his devious methods
and dictatorial habits, and were now associated with Adli and
Tharwat; whilst Ali Mahir, who had also been associated with the
Wafd., oryarusing a civil servants' strike in r9r9, did not now seem to
be identified with any Broup, but pursued in the commission an indi-
vidual and most interesting line of artument. As for the Wafil, they
flatly refused to have anything to do with the Constitutional Com-
mission which Zaghlul denounced as the Malefactors' Commission
(lujctat al-ahqiya'), alleging that a constitution was properly the busi-
ness not of a commission but of a constituent assembly. Zaghlul's
tactics are easily appreciated: he was on the one hand boycotting and
blackening a body created by his political rivals; while on the other,
the demagogical powers, which he had successfully tested on the
Egyptian masses, made him confident of controlling an elected
constituent assembly. The commission was ably assisted by a secre-
tariat of legal experts and draughtsmen.lo
The commission, then, seemed to be well balanced in affording
representation to different interests and sections. Its members col-
lectively possessed a respectable body of political wisdom and legal
expertise, and most of them were traditional and conservative in
their views: their attitude to constitution-making may perhaps be
summed up by the remark of a member who, the American charg6
r65
 THE CHATHAM HOUSE VERSION
d'afiaires repgrted, 'said to me anent the difficult scholarly Arabic
employed that incidentally it had the advantage that "des petits
gens" [sic] . . . would not be able to understand it'.rr But if this may
be said to reflect the attitude of the majority, it certainly does not
represent that of the few members who took an active and prominent
part in the discussions. These included Abd al-Latif al-Mukibbati,
Abd al-Aziz Fahmi, Ali Mahir and Abd al-Hamid Badawi, the
secretary-general oI the council ol ministers. Ali Mahir, in particular,
took an extreme radical, populist and anti-monarchical line, in which
he was occasionally seconded - it is interesting to note - by Shaikh
Muhammad Bakhit, the ex-mufti, and which was quite remarkable
in its contrast to his future
career as a king's man. Discussions
extending over many sittings ranged over the most fundamental
principles of government, and different views and opinions were de-
fended with spirit, learning and not a little ingenuity: thus there were
long debates over the right of the king to veto legislation, to dissolve
the parliament and to preside over the cabinet; debates over the
status of the royal household officials, over the proportion of elected
and appointed senators, and whether the president of the senate
should be elected by his peers or appointed by the king. There were
other debates on matters equally fundamental, but the topics just
mentioned have proved in retrospect to be the most significant and
to have given rise to the many vicissitudes which Egyptian consti-
tutionalism suffered in its short and chequered history.rg
Acute controversy occurred at the very first meeting of the com-
mission. Abd al-Latif al-Mukibbati and Abd al-Aziz F'ahmi stood
for a franchise embracing all Egyptians over twenty-one; Isma'il
Abaza,a notable who had been a member of the Legislative Assembly,
opposed this suggestion saying that he could not imagine how a
peasant who merely tilled the earth and did not know how to read
and write could be considered the equal of, say, Abd il-Aziz Fahmi
or of himself. Those in favour of universal suffrage buttressed their
contention by the argument that equality of burdens entailed equality
of rights, and that since the peasant was subject to conscription, his
right to vote was beyond dispute. Their opponents, however, argued
that the vote was, as Haikal puts it, part of the process of govern-
ment, ' 'amaliyya min'amaliyyat al-hwhm', on which depended the
choice of representatives who, by their expression of confidence in
the cabinet, made its continuance in power possible; it followed
therefore, according to this view, that some acquaintance with
t66
THE GENESIS OF THE EGYPTIAN CONSTTTUTTON OF rg23
politicalissues and some informed interest in the operation of govern-
ment was required from the voter.rs The debate, as may be appre-
ciated, raised issues of principle which, if not speedily resolved in
some fashion, threatened to prolong deliberations intolerably. The
chairman, Husain Rushdi, acted quickly. At the second meeting,
after prolonged debate, he succeeded in having appointed a sub-
committee of eighteen members who were charged with formulating
the basis on which the constitution ought to rest. The smaller
numbers made the sub-committee more manageable, but here too
issues of principle continued to be raised and debated with skill and
pertinacity. The main dispute within the sub-committee lay between
those who wanted to give the monarch some real powers and those
who wanted his function to be merely ceremonial. According to
Haikal, Husain Rushdi played a crucial part in these debates; Rushdi
Pasha, he writes, was 'the real motive force behind its activity'; he
got up in advance the subjects to be debated, he intervened frequently
in the debates, and used the authority of the chair to adjourn the
debate whenever it threatened to produce undesirable decisions.
Haikal describes Rushdi's attitude with some precision:
Notwithstanding his acceptance of public liberties and indeed his warm
defence of them [writes Haikal], Rushdi Pasha inclined to concede
certain rights to the monarch. . . . Some people have expressed surprise
at such an attitude in a man who had studied in France and had been
particularly known for his courage and his preference for liberty. . . . It
seems to me that in these discussions the man was not defending a view
in which hc believed, but rather a policy which, he was convinced, was
the only one to ensure the realisation of the greatest part of the com-
mission's aims. The policy depended on the fact that whatever was pro-
ducecl by the commission was no more than a draft constitution which, in
order to take effect, had to be ratified by the monarch. If, therefore,
such a draft deprived the monarch of all power, then it would be subject
to radical revision; but if, on the other hand, satisfaction were given to the
monarch on some issues, while basic rights were secured to the nation
and its representatives, then it was most probable that nothing would
prevent the draft constitution being promulgated.l.

Haikal goes on to say that these considerations were also very much
in the minds of those members of the commission who were most in
contact with Tharwat and his Ministry. Two other motives, Haikal
thought, further explain Rushdi's policy; the first, that, with the
constitutional issue out of the way, Egypt could begin to tackle
167
 THE CHATHAM HOUSE VERSION
Great Britain on the four reserved points of the Declaration of
z8February; thesecond, thatif it cameto acontestbetween'moderates'
and 'extremists', as happened when Adli and Zaghlul clashed in the
spring ot tgzt, a monarch with some effective constitutional power
would exert his influence in favour of the 'moderates'. If this was
really in Rushdi's mind the events which followed the promulgation
of the constitution must have soon undeceived him.
The draft constitution produced by the commission was, then, a
compromise between Fu'ad's desire for unfettered power and the
views of those on the commission who stood for unfettered popular
sovereignty. It was largely a codification and abridgement of consti-
tutional practices and traditions which had grown up in Europe since
the middle ages; which had been digested, summarised and trans-
formed into'principles of public law'by the academic lawyers, mainly
French, from whom members of the commission derived much of
their constitutional learning. The draft began by asserting (Article
4\ that 'All authority derives from the Dotion',r6 went on to divide
governmental powers into a legislative (to be exercised by a Parlia-
ment in conjunction with the king), an executive (of which the king
was the head) and a judiciary. Executive power was to be exercised,
under the king, by a council of ministers who were to resign from
ofrce on forfeiting the legislature's confidence. The king had a limited
right of veto over legislation (Articles 33 and 34), the power to dissolve
a parliament (Article 36) and the power to appoint and dismiss
ministers (Article 45). The commission published a commentary to
accompany the draft,lc in which they explained that the right of
dissolution was essential as a means of effecting a balance between
the executive and the legislative, enabling the nation to be consulted
whenever there was a deadlock between the different powers in the
state. The commentary also supplied a gloss on Article 45 which gave
the king power to appoint and dismiss ministers, saying that the
current convention was that the king chose the prime minister and
on his advice appointed and dismissed ministers.
This, then, was a model, a text-book constitution, sage corrtfite nne
imagc, full of checks and of balances, an ordered and intricate toyland
in which everything was calm and beauty. Its radical failing in the
actual conditions of Egyptian politics was that it assumed and took
for granted that elections in Eg'5pt could possibly elicit, as they did
elsewhere, the will of the electorate. As the sequel, from r9e3 to 1952,
showed, they did nothing of the kind; Egvptian elections, rather,
proved to be ratifications by the masses of decisions taken by the
r68
THE GENESIS OF THE EGYPTIAN CONSTITUTION OF 1923
king, or else by the Cairo politicians, depending on which side had,
for the time being, the upper hand. Dissolutions, therefore, could not
remotely help, as the commission expected, in preserving the balance
of the constitution, and their judicious and elaborate considerations
merely manage to look ineffective and academic. This is also the case
with their gloss on Article 4g dealing with the appointment and dis-
missal of ministers; the commission took for granted that a prime
minister would be appointed only if he had a majority in the Parlia-
ment, and fastened on the insignificant issue of the appointment and
dismissal of other ministers. In fact, the clause in the draft giving the
king powers to appoint and dismiss ministers - including, of course,
the prime minister - was passed on the nod in the General Commis-
sion. The Commission did not consider the possibility that the king
might make a literal use of his powers and appoint and dismiss his
chief ministers as he liked. But this is what in fact repeatedly hap-
pened under the parliamentary regime in Egypt.
Given these conditions, the parliamentary regime which Tharwat
and his friends desired and which Allenby was inclined to press on
the king could not but justify Cromer's foreboding when at the end of
his long rule in Eglpt he affirmed that 'under the specious title of
free institutions, the worst evils of personal government would
reappear'.l? Rushdi's judicious policies, and his tenacious attempts at
compromise, availed nothing, for even if by some miracle he had
succeeded in reconciling royal ambitions with constitutional govern-
ment, he would yet have been powerless to endow an Eg'yptian
Parliament with representativeness, or to make possible limited
government in a country where unlimited power was, and continued
to be, a standing temptation, easy to fall into and safe to indulge.
Therefore we may say that by supporting parliamentarianism in
Egypt, Allenby was engaging his credit and the credit of his govern-
ment in support of a farce.
For him it was not even a profitable farce. One of the points which
the Declaration of z8 February'absolutely' reserved to the discretion
of the British government was the Sudan, then administered as an
Anglo-Egyptian condominium. The constitutional commission de-
cided that the forthcoming constitution should indicate unmistakably
that Fu'ad was king of both Egypt and the Sudan. Such a proposal
was defended alike by those who were the king's partisans and by
those who wished to challenge British power in the Nile valley. When
Allenby came to hear of this proposal, he objected strenuously, but
r69
 THE CHATHAM HOUSE VERSION
in spite of the fact that Tharwat and his friends were in ofrce owing to
British support, his protests availed him nothing and the draft
constitution when it was completed and handed to Tharwat stated, in
Article zg, that'The king shall be called king of Egypt and the
Sudan'.lt The fact is that however much Rushdi, Tharwat and their
friends may have disliked this provision, they had no means of oppos-
ing it without giving the king and Zaghlul a powerful pretext for
attacking them as creatures of the British government. Haikal tellsle
u s that Tharwat consulted Adli and his other political friends who
advised him that the provision had to stand. Allenby used to com-
plain that Adli was a broken reed, and that he much preferred to
deal with Tharwat.to And it is true that Adli was not a fighter, but
in this particular case it was Thanrat who let Allenby down, and
could not do otherwise if he wanted to stay in power. The episode
merely shows that the policy which Allenby thought worth coercing
his government into following was of pretty little use in the defence
of British interests, and that, as hitherto, British interests had to be
defended by constant British intervention, which after the Declara-
tion of z8 February could be (and was) legitimately denounced as
interference.
Husain Rushdi could be as statesmanlike and moderate as he liked,
but there was no disguising the fact that the draft constitution,
however solicitous of the king's prerogative, represented a serious
limitation of his powers. Fu'ad did not mean to be reduced to a
constitutional monarch so that Thanvat and his friends might enjoy
greater patronage and power. The royal palace was traditionally a
power in the land, and so long as a constitution was not promulgated
the king retained vast powers of initiative, intervention and patronage
which Fu'ad proceeded to wield for the undoing of his chief minister.
During the summer of, rgzz Fu'ad made clear his disapproval of
Thanrat and his policies; and the ministry's supporters within the
constitutional commission tried to make haste and complete their
labours; a sub-committee was appointed to produce the final draft of
the constitution, and another sub-committee to produce the final
draft electoral law.21 The texts were at last agreed and six months
after beginning its work the commission presented them to Tharwat
on zr October.
By then the prime minister's position was gravely weakened both
by his disagreement with Allenby over the Sudan and by the king's
manifest disapproval. One of Fu'ad's tactics now was to adopt a
170
THE GENESTS OF THE EGYPTIAN CONSTTTUTTON OF rg23
popular stance and insist that Tharwat should obtain from the British
the recall of Zaghlul, the people's tribune, and of his friends, frorn
exile - to which they had been sent in December r9zr, precisely in
order that Tharwat might assume office unhinderedl 'There is again
a coolness between Sarwat, the prime minister, and the king', re-
ported the American charg6 d'affaires on 2 October, 'due to a dif-
ference of opinion relative to the policy pursued with the Zaghlul
leaders. The king is afraid of their enmity and is for leniency. This
Sarwat regards as weakness and opposes'.$ The language of this
telegram indicates not so much the king's actual motives as the
impression which he desired outsiders to gather. The architect of
this policy would seem to have been Tawfiq Nasim, a former prime
minister who since April tgzz was chief of the royal cabinet. It
appears that he managed to achieve an understanding between the
king and Zaghlul's party which was presumably directed against the
existing ministry.2s
The upshot of these manoeuvres was that theWafd, began to attack
Tharwat's administration even more strongly, and to abound in
fervent declarations of loyalty to the throne. In the telegram of z
October previously cited, the American chargd d'afiaires reported
that Tharwat was then unpopular and that his administration could
not last for long; 'it is in effect', he added, 'imposed upon the country
by measures taken or supported under martial law'. The observation
is correct and applies not only to the last days of Tharwat's ad-
ministration, but in fact to the whole of it; it had been brought in
and supported by British power, but that the truth should now be
openly said about it indicated that its days were numbered. In the
event, Tharwat lasted until the end of November. The co,wp de grdce
was delivered with the help of another household official, Hasan
Nash'at, whose role in Egyptian politics had hitherto been obscure,
but who was to play a part of some importance in the following years.
The king, attended by Tharwat and his other ministers, was to go
to al-Azhar for Friday prayers on I December. Nash'at distributed
money among the Azhar students and incited them to demonstrate
against Tharwat on the occasion of the royal visit. Tharwat heard of
this plot, and rather than be subjected to the indignity of such a
contrived attack, preferred to send in his resignation the day before.
Nash'at brought Fu'ad's acceptance within the hour; Allenby told
the American minister how sorry he was at Tharwat's fall, and
heavily remonstrated with the king for his actions, 'informing him of
T7T
 THE CHATHAM HOUSE VERSION
the displeasure of the British government at his treatment of a
minister who had been appointed to implement the policy of the
Declaration'!20
Tawfiq Nasim, the new prime minister, had two assigaments: to try
to make the constitution as innocuous as possible, while maintaining
the provision of Article z9 which assured to Fu'ad the dual monarchy
of Egypt and Sudan. This latter object was, of course, impossible
to achieve in the face of British objections. Allenby had protested
against the offending Article when Tharwat was in power, but may
have found his style cramped by his desire to support him. Such
considerations now no longer inhibited Allenby, and he coerced the
king into signing a declaration giving up these pretensions.rs We
do not know the exact tenor of this declaration, but Allenby's threat
seems to have been to the effect that if Fu'ad persisted in his claim
he would have to gtve up the Egyptian throne not only for
himself but for his heir as well. Fu'ad signed this declarationse at
the beginning of February rgz3, and, according to Allenby, Tawfiq
Nasim felt, as a result, that he could not continue in office. He resigned
on 9 February, the king denouncing him as a coward.2?
During his period of office, rumours became rife that the palace
and the ministry had amended the constitution drastically, that the
clause stating that the nation was the source of authority was to be
omitted, that the king was to be given wide prerogatives in the
distribution of honours, the dissolution of parliament (and not merely
the chamber of deputies as the draft proposed), and in the control of
religious endowments, that he was to have the power of issuing
decree-laws even when the parliament was sitting, and that the
proportion of senators appointed by the King was to be greatly
increased. The Liberal Constitutionalists, and A'bd al'Aziz Fahmi
in particular, were loud in their protests.rt Tawfiq Nasim resigned
before any amendments were officially published, but that drastic
changes had been made to conform to Fu'ad's wishes is not in doubt.
It did not prove easy to aPPoint a successor to Tawfiq Nasim.
Adli Yakan was approached to form an administration, it would
seem at Allenby's instance,2e but the political situation which he
confronted was complicated and treacherous in the extreme. Under
Tawfiq Nasim's inspiration, the King's policy had been, from the
summer of. tgzz onwards, to encourage Zaghlul's llald to maintain
popular effervescence against Tharwat and his British patrons, by
means of demonstrations and terrorist outrages. These outrages
172
THE GENESTS OF THE EGYPTTAN CONSTTTUTTON OF tg23
continued unchecked under Tawfiq Nasim's administration. These
tactics are clearly exhibited in a letter from Tawfiq Nasim in
answer to a protest by Allenby against the murder of Mr Robson, a
lecturer at the Law College. Tawfiq Nasim asserted that such out-
rages indicated that British policy did not take into account 'the
sentiments of the majority', which had been further exacerbated by
the understanding reached between the British and'a minority which
had no real influence over the nation.'so Thus Allenby -'the bull' -
was baited and ridiculed for the ill-success of his famous Declaration.
When Adli was asked to form a cabinet, he realised that if he suc-
ceeded it would be in the teeth of determined and concerted opposi-
tion from the king and the Zaghlulists. He had had experience, when
prime minister in tgzr, of the lengths to which the Zaghlulists would
go in demagogy and incitement, and had no stomach for another such
experience - this is what Allenby meant when he said that Adli was
a broken reed. In the manner usual to broken reeds, Adli thought to
escape his difficulties by a compromise: he would take office only on
condition that the Wafd. supported him; let Zaghlul and his friends
be recalled from exile and in return let the constitution as drafted by
the commission be promulgated. Since Fu'ad's object was precisely
to prevent this, and since the Wafdists had no desire to see their
rival in power, much less support him, this compromise plan was
quite useless, To help Adli see things as they really were, Wafdist
incitement and terrorist outrages were stepped up. In these activities
it seems that Hasan Nash'at wasi so implicated that the British
required his departure from Egypt and refused to let him return until
the constitution was finally promulgated.El Adli was told that he could
have office with the king's approval, if he agreed to issue the amended
draft as a constitution. He preferred to give up the attempt.
A cabinet was not formed until 15 March. The prime minister was
Yahya Ibrahim, who was not a political personality and presumably
acceptable both to Allenby and to the king. He was not of a calibre
to stand up to either, but was merely the intermediary whose func-
tion was to prevent a direct clash between them. The king, we under-
stand from Allenby's biography, had not abandoned his opposition
to the draft constitution and the high commissioner 'thought it
judicious' to use his influence with him and'accordingly advised him
to allow himself to be guided by his prime minister'. Allenby's consti-
tutional tuition lasted for a month before the king allowed himself to
be converted and to promulgate the constitution on 19 April. In a
173
 THE CHATHAM HOUSE VERSION
report quoted by his biographer, Allenby states that Fu'ad's behaviour
was running counter to 'unanimous and clearly expressed public
opinion' and that he intervened because it was not in accord with 'the
policy of the Declaration' that the king should arrogate 'undue'
powers to himself, and because he wished to avoid a constitutional
struggle between king and people.88 As regards public opinion and
the possibility of a struggle between king and people, there is no
evidence to support Allenby's contentions. It is true that the king's
ambitions were attacked - but only by the handful of politicians and
academics who dreamed of a constitutional representative govern-
ment for their country. As late as 15 April, four days before the pro-
mulgation of the constitution, Abd al-Aziz Fahmi was addressing
an open letter to the prime minister protesting against certain
Egyptians offering the results of the anti-British struggle as a free
gift to the royal hoase (yahibunaha ghaninta bari.da l,iqtmara' al-bayt
al-makk).88 But such protests, noble and courageous as they may
have been, were not the voice of 'unanimous and clearly-expressed
public opinion'. They were on the contrary the voice of a minority
of politicians who - Abd al-Aziz Fahmi expected - by their later
actions showed that their regard for constitutionalism speedily
disappeared at the prospect of power. Again, Allenby was mistaken
in thinking that an autocratic constitution would have precipitated
a struggle between king and people - it might have precipitated a
struggle between the king and Allenby's clients, but this is another
story. As for Allenby's remaining motive, i.e. that the king's be-
haviour was contrary to 'the policy of the Declaration', it is most
revealing. Allenby does not - and of course cannot - say that such
behaviour was contrary to the Declaration, for there was nothing in
the Declaration to show that Fu'ad had to be a constitutional figure-
head, scrupulous in observing the proprieties, content merely to be
consulted, to advise and to warn; 'the policy of the Declaration'is
another matter altogether, and really signifies the assumptions on
which Allenby had built his policy. Fu'ad was under no obligation to
make these assumptions come true. Allenby as a constitutional
mentor calls to mind the observation of a witty orientalist on the
behaviour of the Abbasid caliph al-Ma'mun trying to force theolo-
gical dogmas down the throats of his unwilling divines: 'C'6tait un
libiral' wrote Darmsteter of him, 'c'est-d-d,ire qu'il, eruoyail les
oilhodoxes d la potence". Mulatis mutandis, the description fits the
methods of Allenby the constitutionalist to perfection.
174
 THE GENESIS OF THE EGYPTIAN CONSTTTUTTON OF rg23
The constitution promulgated on 19 April differed in many ways
from the draft completed the previous October. The extent of the
king's original demands may be imagined from the wide prerogatives
which this document still secured to him even after a month of
powerful pressure from Allenby. Article 23, which asserted that the
nation was the source of authority, remained in the constitution in
spite of the fears of the Liberal Constitutionalists, but it was glossed
with a curious commentary from the minister of Justice, Ahmad
dhu'l Faqar. 'The principle that the nation is the origin of all
authority', stated his explanatory memorandum issued with the
constitution, 'is not in contradiction with the origin of the Islamic
monarchical and absolutist governments, because these monarchies
used initially to depend on the explicit or implicit consent of the
people represented by its elders and notables'.3{ The theory is not
really tenable; but its effect is to substitute an autocratic interpreta-
tion for the democratic one intended by the original authors of
Article 23. The modifications introduced in the constitution itself
were of greater importance, however, than the merely academic
dispute about the proper meaning of Article 23. The constitutionss
gave the king power to confer civil and military rank, decorations
and titles at his own discretion,so it gave him power to appoint and
dismiss military officerss? and diplomats.ss The constitution also
increased significantlv the proportion of appointed senators and.
made the presidency of the senate an office rvithin the sole discretio.
of the monarch to bestow.3o Again, it left religious endowments and
the control of the Muslim religious institution solely within the power
of the king until the parliament should legislate otherwise.{0 The
draft also had specifically entrenched eight articles against amend-
ment or abrogation, while the constitution was much more vague in
stating that no proposal could be entertained which would change
'the provisions guaranteed by this constitution concerning the repre-
sentative form of government, the order of succession to the throne
and the principles of liberty and equality'.4l
The king, then, got what he wanted, in part at least. But in order
to get it, he had had to enlist the help of Zaghlul and his Wafdists,
for which, of course, they exacted a price. The price was the king,s
support in gaining power. The extent to which Fu,ad was involved
with Zaghlul at that time may be gathered from the fact that at his
first interview as prime minister with the high commissioner, yahya
Ibrahim - who himself had no Wafdist connections - asked Allenby
175
 THE CHATHAM HOUSE VERSION
to allow Zaghhtland his companions to come back from their exile.{z
Egypt was at last endowed with a constitution and an electoral law'ag
Elections had therefore to be held, and rvhen they were, at the end of
1923, the weight of administrative influence was exerted against the
Liberal constitutionalists,.a and therefore in favour of wafdists.
Zaghlal enjoyed a crushing majority and was appointed prime
minister. Later Fu'ad used to justify his behaviour in supporting
Zaghlul at this juncture by claiming that it was a far-sighted scheme
for breaking the 'popular idol' by burdening him with responsibility'{E
But when he held this conversation, Fu'ad was surely sighing with
relief that Zaghlul's ineptitude and his failure to control the terrorist
apparatus{s had accidentally rid him of a prime minister whom his
own machinations had brought to power, and who, when he unexPec-
tedly fell, was bidding fair to overwhelm with a populist dictatorship
Fu'ad's own autocracy.

176
 7

Egypt and the Caliphate, ryr S- Sz

It is common knowledge that religion and politics in Islam are closely

related, and that in this relationship the prevalent mode has been for
the man of the sword to dominate the man of the pen. This is so both
in theory and practice: passive obedience to the ruler has been
erected into a religious duty, while religious dignitaries, muftis,
qadis and such have been usually content to play the role of

an attendant lord, one that will do

To swell a progress, start a scene or two,
Advise the prince; no doubt an easy tool,
Deferential, glad to be of use,
Politic, cautious and meticulous;
Full of high sentence, but a bit obtuse . . .

The men of religion were of course compelled into this long-standing

acquiescence by the unremitting burden of capricious and exacting
despotism, and if the burden were to be ever so slightly shifted, we
might witness some stirrings, some attempt on their part to break
loose from political dependence, or even - chimerical as this may
sound - to assert the temporal primacy of religion over political
authority. Some such spectacle confronts us when we consider the
hiatus in EgSrytian political history which runs from r88e to rg5z.
In the first part of this period - which ended in r9r9 - the British
managed to establish arechlstaat controlled by an efficient andupright
bureaucracy, using their power to keep in check the despotic appetite
of the local ruler and of his subordinates; whilst in the second part,
British authority having been withdrawn and British preponderance
destroyed, a confused situation ensued in rvhich a number of con-
tenders struggled for power, until the cowp d,'Ctat of. z3 July rg5z
decided the issue and heralded a return to more habituar methods and
practices. In both phases it was possible for men of religion to show

r77
 THE CHATHAM HOUSE VERSION
initiative and enjoy unwonted freedom: in the first because the British,
foreign and non-Muslim rulers, were in no position - even had they
desired it - closely to control their activity, while in the second, the
sharp struggle between king and politicians afforded many opPor-
tunities for manoeuwe. Thus, Cromer's support gave elbow room to
Muhammad Abduh and allowed him to stand up to an imperious
and ambitious khedive; while the period of constitutional monarchy,
so-called, afiorded some scoPe to Mustafa al-Maraghi to play a part
in the politics of the period, and even at one stage to exert quite
considerable influence. As it happens, Maraghi's later career was
deeply involved in the caliphate question which in its last stages -
between r.gz4 and 1939 - was an important issue in Egyptian
internal and external Politics.
Muhammad Mustafa al-Maraghi (r88r-r945) was chief qadi in the
Sudan from r9o8 to r9r9; between r9r9 and r9z8 he was successively
chief inspector of the religious courts in Egypt, president of the
religious court of first instance, member and then president of the
religious high court. From August r9z8 to October 1929, and again
from 1935 until his death in 1945, he was rector of al-Azhar.l It was
during this first period of tenure at al-Azhar that he came much into
the public view. His appointment ended a ten-month deadlock
between King Fu'ad and his Ministry in consequence of a law of
r9z7 which had decreed that the rector was to be appointed by the
king on the advice of the prime minister. It is most probable that
al-Maraghi was the nominee of the then prime minister, Muhammad
Mahmud; for they both hailed from Upper Egypt, and al-Maraghi
then and later had close connections with Muhammad Mahmud's
party, the Liberal Constitutionalists.! During his first, short, tenure
of the rectorship, al-Maraghi sponsored a bill which proposed many
reforms in the structure and teaching of al-Azhar, but on Muhammad
Mahmud's loss of office he was speedily dismissed. His successor was
unmistakably the king's nominee, and Fu'ad took care to have the
law amended so that the appointment should revert to being - what
it had always been - solely in his gift.8 Maraghi, having gone out under
a cloud, remained in retirement for five years. In April 1935, following
a long period of student strikes and disorders and as a consequence of
a weakening in Fu'ad's political position, al-Zawahii, his nominee,
was compelled to resigrr the rectorship, and Maraghi entered on his
second, much longer tenure' Faruq's accession followed shortly after'
Maraghi was appointed to give the king - still a minor - lessons in
178
 EGYPT AND THE CALIPHATE, rgr1_52
religious subjects and Arabic literature and history.a The connection
-
between Faruq and Maraghi became and remained very close, -
and on the Friday following the rector's death, his biographer re-
cords, the king bade the worshippers at his mosque to pray for the
soul of 'my friend Shaikh al-Maraghi'.0 It seems fair to say that if
Maraghi started on his second tenure at al-Azhar as a Liberal Con-
stitutionalist in politics, at odds with the royal palace, he ended it
most deflnitely as a king's man. His political career in this respect
exemplifies the rapid, confused, continuous change in political
allegiance which is a feature of Egypt's politics under the monarchy.
Maraghi's first recorded contact with the caliphate issue occurs
during the first world war, when he was chief qadi in Khartoum. In
the first half of r9r5 the possibility of an Anglo-Sharifian under-
standing was in the air, and Sir Reginald Wingate, the governor-
general of the Sudan, who favoured it strongly, was canvassing Muslim
opinion about the feasibility of the sharif of Mecca replacing the
Ottoman sultan as caliph. The ulama, perhaps out of a desire to
please, perhaps out of genuine conviction, indicated to Wingate that
the sharif was in every way qualified for the caliphate. Maraghi
wrote a note (of which there does not seem to be a copy in theWingate
Papers) supporting this view. But then he intervened with another
brief, but skilful and subtle, contribution. He wrote a lettertoWingate
which purported to set out authoritatively the Muslim doctrine about
the caliphate.o In this letter, Maraghi manages to throw doubt on the
contention - highly favourable to the sharif - that a caliph had to be
descended from the Prophet's tribe, Quraish. This condition he
ascribes to historical accident, and he denies that it is unanimously
accepted by the jurists. 'It should not be forgotten', he says, to
buttress his contention, 'that the universal acknowledgment of all
Mohammedans throughout the world to the sultans of Turkey as
khalifs is a sufficient proof that they respect the latter opinion, i.e.
that it is not necessary for the khalifa to be a Kurashi'. Even more
remarkable, he equated the caliphate with secular kingship, and divine
prescriptions with man-made laws: '. . . the question of the khalifate',
he writes, 'is a purely worldly one and has certain connections and
relations with religion. The khalifa is in all respects a king who
exercises over his subjects certain powers he derives from the Holy
Books. Other kings govern their subjects by laws enacted by pro-
ductive brains'. Maraghi recognised that this argument supported
the legitimacy of the Ottoman caliphate: 'the appropriation by the
17g
 THE CIIATIIAIT! HOUSE VERSION
sultans of Turkey of the title of khalifa, is in no way contrary to the
principles of the faith, although they are not from the tribe of
Koreish'; but this did not mean that he himself approved of or
recommended loyalty to the Ottoman caliphate: 'If the Moham-
medans consider, as I am inclined to hold, that their faith has reaped
no good from the Ottoman khalifate, they are evidently the best
judges as to whether the Ottoman khalifate should be changed or
not. They can very easily find an example in the deposition by the
Turks of Sultan Abdul-Hamid and the appointment of his successor.
Their reason in the step they have taken was that the country made
no progress in the time of Abdul-Hamid. The Mohammedans can
now decide on the situation from the actual conditions of the empire
under the new khalifa'.
Maraghi's letter, for all its moderate and judicious tone, for all its
avoidance of open advocacy, is a remarkable example of special
pleading. In his anxiety to minimise the importance of Quraishite
descent, Maraghi gives the impression that this is a disputed question
among the jurists. In fact, the consensus of the Muslim jurists holds
that in a caliphate by election descent from Quraish is a necessary
condition.? Admittedly, this is the case only in a caliphate by elec-
tion, when conditions make it possible to conform to all the rules and
stipulations laid down by the doctors of the law, and a caliphate by
election was of course a strictly bookish notion, a mere jurist's dream.
Yet in undertaking to instruct Wingate er cathed,ra, so to speak,
Maraghi might have been expected to give its due weight to the
traditional consensus. Another feature of Maraghi's letter was the
manner in which he appealed now to history, and now to juris-
prudence according to the needs of his argument. He says, and it is
indeed true, that obedience to the Ottoman caliphs, in spite of the
fact that they were not of Quraishite descent, was lawful. But this
was because, side by side with the caliph by election, the jurists had
been compelled by circumstances to recognise a caliph by domination,
whose claim to rule was enforced by the sword. Obedience to such a
caliph was also a religious duty, on the ground that rule and religion
are twins, and that civil order is a necessity. But the origins of such a
caliph cannot be enquired into, his ability to rule is his sole credential,
and obedience is equally due to his supplanter. Such a doctrine made
due allowance for historical vicissitudes and safeguarded - by keeping
it free from worldly taint - the hallowed notion of an elective caliphate.
In the circumstances of r9r5, there could be no question of the
r8o
 EGYPT AND THE CALTPHATE, rgr'-52
British government encouraging or promoting a caliphate by domina-
tion, and yet Maraghi is found arguing that because Muslims have
lawfully obeyed the Ottoman caliph, who had established his do-
minion by the slryord, therefore descent from Quraish was not neces-
sary in a candidate to what could be, if anything, only a caliphate by
election.
The implication of Maraghi's reasoning is obvious. Having poured
cold water on the necessity of descent from Quraish, and having
stated that Islam has reaped no good from the Ottoman caliphate,
he clearly left the door open for another candidate, who would benefit
Islam and who was yet not a descendant from Quraish. Nor do we
have far to go to discover whom Maraghi had in mind. Discussing
with Wingate his change of views since his earlier note which had
supported the claims of the sharif, he said that due consideration
should be given to the claim of Egypt to the caliphate. Eg'ypt, in his
view, was far more prepared to undertake such a burden than any
other state, because she took the lead in religious education antl had
a vast number of highly educated and intelligent Muslims who could
be entrusted with the affairs of state.s
We have no evidence to indicate whether Maraghi was acting on his
own, or at somebody's suggestion, but we do know that Husain
Kamil, the sultan of Egypt, was not pleased with British encourage-
rnent of the sharif. At the start of the sharif's rebellion, Egyptian
troops were sent as reinforcements to the Hijaz, and this drew a
protest from Husain Kamil to Wingate, who was then in charge of
military operations in the Hijaz. The dispatch of Egyptians to the
Hijaz in order to fight the Ottomans, he wrote in a letter of 6 November
1916, 'could not but leave a bad impression on public opinion in the
country. As the news becomes known, opinion will wonder what
interest Egypt has in waging war in order to help establish an
independent Arab kingdom'.o The sultan was not only concerned
over the internal repercussions of Egyptian troops fighting Ottoman
in the Hijaz, he also despised the sharif, and thought that Egypt was
much more entitled than him to succeed to Turkey's primacy in the
Islamic world. He hoped, so wrote Wingate to Lord Hardinge on
17 April tgt7, to see Cairo, already a great centre of fshmic teaching,
as one of the most, if not the most important Islamic centre in the
world; he therefore disliked the sharif's movement and the generous
support the British were giving it. He described the sharif's entourage
in Mecca as canaille, and doubted whether the sharif would ever be
r8r
 THE CHATHAM HOUSE VERSION
able to control Arabian potentates such as Ibn Sa'ud.ro It may even
be that the sultan actively promoted his own claims to the caliphate:
we gather this from a passing reference in a letter from Fu'ad al-
Khatib, the deputy foreign minister of the Hijaz to Faruqi, the
sharif's agent in Cairo, which speaks of the sultan's intentions re-
garding the caliphate, and of his having supporters spreading his
appeal;ll also, from a memorandum by Sir Ronald Graham of z
March rgrT it which he writes that the sultan had been recently
informed that he should not aspire to the caliphate. Graham went on
to say that Egyptians considered the sharif a Beduin chief, and to
them Beduins were simply nomadic robbers: the prospect of the
sharif as caliph was to the Egyptians what to his contemporaries
would have been the prospect of Friar Tuck as archbishop of Canter-
bury." Sultan Fu'ad held the same views and pursued the same
ambitions as his predecessor, Husain Kamil. One of his motives in
supporting Zaghhtl was his suspicion that if Egypt were the pro-
tectorate of a Christian state, she could never hope to have the
primacy in Islam. He was, said Wingate in a telegram of z6 December
r9r8, extremely jealous of the king of the Hijaz, and he dicl not hide
his displeasrrre at the encouragement which the British lavished on
Husain.u A year or so later Allenby reported that a new prayer for
Fu'ad, originating in the Palace, had been distributed to the preachers
who read it at the Friday prayers. The worshippers, it seems, howled
them down because the prayer was interpreted to constitute a claim
by the Sultan to the caliphate.ls
The caliphate question became acute in rgz4.In March, the Turks
abolished the Ottoman caliphate and sent the last caliph into exile.
Thereupon the king of the Hijaz hastened to have himself proclaimed
caliph, basing himself - so he claimed - on the suffrages of the faith-
ful in Palestine, Syria, Iraq and Trans-Jordan. But Husain's pre-
sumed election settled nothing; it was patently farcical and had no
relation to the realities of the Islamic world. Fu'ad for one could not
be expected to acquiesce in Husain's mock caliphate. To the United
States minister who questioned him about newspaper reports which
stated that he had been ofiered the caliphate, he said that he 'would
not entertain for a moment the thought of accepting this position'.
He disapproved of the abolition of the Ottoman caliphate and was
bitter and contemptuous about other likely candidates. He suspected
Mustafa Kemal of aspiring to the office, but was quite sure he would
not obtain it. Of the king of the Hijaz, he said 'I regard him also as an
t8z
 EGYPT AND THE CALIPHATE, TgrS-52
impossible person for this place. He probably will have the support
of his own little country and its comparatively few people' and the
support of his sons, the king of Iraq and the amir of Trans-Jordan,
together with that of the Arabs of Palestine.lr It would seem that
Fu'ad also more than once strenuously denied any interest in the
caliphate to Zaghlul who was then prime minister.ro But such denials
were made to seem highly formal by his own and his supporters'
extensive and determined activity. As soon as the Turkish action
became known, letters and articles appeared in the press advocating
an Eg'lptian caliphate.rT At the same time, a gatherin g ot ulama which
took place at the house of an ex-prime minister, Muhammad Sa'id
Pasha, discussed the abolition of the Ottoman caliphate and one of
them said: 'Why should the caliphate not go to King Fu'ad? We have
but to assemble the ulama of Egypt and they will elect him and give
him their suffrages (yubayd'wnahu), and the caliphate will thus come
to belong to the king of Egypt'. Ahmad Shafiq Pasha, who recounts
the episode, goes on to say that the suggestion was conveyed to the
king, who turned it down.l8 This, however, was not the end of the
matter, for on zJ March the chief religious dignitaries of Egypt
(among whom Maraghi was included) issued a long statement declar-
ing that Muslims were no longer bound to obey the deposed Ottoman
caliph and that the office was vacant; they invited the Muslims to
send representatives to Cairo in a year's time 'to designate the new
caliph'.te
The speed rvith which these religious dignitaries acted was re-
markable. It is not likely that the initiative was theirs. In a letter to
Shakib Arslan dating from the latter part oi tgz5, Rashid Rida
stated that the ul,antas issued their official declaration 'only after
having ascertained the feeling of Abdin palace on the matter'.2o
Rashid Rida can be considered well informed on this question not
only because he was generally well informed on Islamic matters but
also because he seems to have taken part in the propaganda which
was then started in Egypt in order to advance Fu'ad's claim to the
caliphate. The first number of a periodical which described itself as
dedicated to the promotion of a caliphate congress in Egypt, opened
with an article by Rashid Rida extolling the benefits of Islamic unity
and harshly attacking King Husain - who had been proclaimed
caliph in parts of the Arab world and who had subsequently had to
abdicate his rule in the Hijaz in favour of his son Ali - as the despot
(taghut) of the Hijaz who had falsely claimed to exercise kingship
r83
 THE CHATHAM HOUSE VERSION
over all the Arabs and the caliphate over all the Muslims and whose
designs God had defeated by stripping him of his alleged authority,
and leaving him cut off from the community, abandoned, hated and
execrated.zl It is an interesting sigrt of Rashid Rida's soundness as an
Islamic scholar that even though he had a consuming hatred for
Husain, he yet did not allow himself to go against the tradition and
the consensus of the jurists and to argue that Quraishite descent is
not necessary in a caliph. The farthest he goes is to quote Ibn
Jubair, a traveller not a jurist, to the effect that people have not
seldom preferred a Kurdish sultan to a Quraishite caliph because of
the greater equity of his rule.
Rashid Rida's letter to Shakib Arslan is not the only evidence that
Fu'ad was behind the agitation to proclaim him caliph. In March r9z7
the (Wafdist) minister of pious foundations, Muhammad al-Gharabli
Pasha, we asked in the Egyptian parliament to explain a payment
of. {z,5oo made to the rector of al-Azhar in five instalments during
tgz4. The minister replied that the rector had asked for the money
in order to cover a deficiency in the budget of the Religious Institu-
tions, but that subsequently it appeared that the money was spent
on the caliphate congress.22 The answer was probably meant to, and
did, create an uproar. The rector of al-Azhar and other shaikhs were
harshly attacked for their irregular financial proceedings. This was a
Wafdist Parliament's way of indirectly attacking King Fu'ad and his
ambitions, and to one member it appeared unfair that the rector and
his fellows should be made the vehicle for such indirect attacks. Fikri
Abaza declared tliat the matter was important and required frank-
ness in its treatment: 'You all know', he said, 'that at that time the
royal entourage - and misfortunes always come from the enlowrage -
thought that an august will desired the caliphate. In tgz4 and in
rg25, sums were being spent quickly and without the Proper Pro-
cedure at the ministry of pious foundations. On what basis of
equity and law', he asked, 'can we justify the displeasure we are
manifesting towards the rector, whilst the heads [i.e. the principals]
are still there, and unaccountable to anyone?'28 Stung by these
attacks, the purpose of which was all too clear, a palace-inspired
newspaper wrote:
Let us face the real facts; the present minister of Wakfs [Pious Founda-
tionsl - Muhammad Gharabli Pasha - is the same minister of Wakfs who
received the chancellor's [the Azhar rector's] letter on 3r March 1924,
and ordered the money to be paid to him. He was then a member of the
r84
 EGYPT AND THE CALTPHATE, tgr'-sz
Zaghlul Ministry. Why did he not ask the shaikh what he wanted the
money for, if the government at that time did not know it was to be
spent on the Caliphatc Congress? Especially as the chancellor of the
Azhar declared in his demand that the amount should not be put in the
budget of the Theological Administration?8'

The agitation against the rector of al-Azhar, however, continued;

there was a demand in parliament for him to be investigated and
even to be made to refund the money. The rector then visited the
prime minister and, so reported the Egypti,an Gazette of. t6May tgz7,
showed him a letter from the ministry of pious foundations, itself
suggesting a procedure by which money could be drawn to cover the
expenses of the congress, without such an object appearing openly.
The agitation seems to have died down thereafter. It was no doubt
equally inconvenient to both sides - though for difierent reasons -
then to make the point that as the law stood from rg24 to rg27 the
king, by virtue of Article r53 of the constitution, had control over the
budget of the religious institutions. We may safely assume, there-
fore, that official monies were spent on the caliphate congress not
only in 1924, blJt also in tgz5 and in tgz6 when the congress at last
took place.
There is still further evidence of Fu'ad's interest in the caliphate.
In March tgz4, when the congress was first mooted, the under-secre-
tary in the Ministry of Pious Foundations was Hasan Nash'at. Nash'at
was not a Wafdist, but rather a king's man, one of those whom
Zaghlul agreed to take into his Ministry, presumably in exchange for
the king's support in the elections of rgz3. Shortly after the abolition
of the Ottoman caliphate it became clear that Nash'at was promoting
an Egyptian caliphate: 'He used', writes Ahmad Shafiq Pasha, 'to
take trips to Tanta and meet the ulama there. Then he would go to
Alexandria and other cities where meetings with ulama could be
arranged. Thereupon committees sprang up in those places known as
caliphate committees'.z5 When relations between Fu'ad and Zaghlul
worsened, Nash'at was used, so the Wafdists were convinced, to stir
up the Azhar against the lVafd, government. In October, Zaghlul had
a showdown with Fu'ad and obtained, among other things, that
Nash'at should leave his government. Nash'at then became acting
head of the royal cabinet and the king's general agent and factotum in
the country until he was dismissed in 19z6 at Lord Lloyd's instance.
While in this post his word was supreme, as the Liberal Constitu-
tionalist leader, Abd al-Aziz Fahmi complained, in the ministries of
r85
 THE CHATHA}I HOUSE VERSION
pious foundations, of war and of foreign affairs, that is, precisely
in those departments where the king, according to the constitution,
had the final say in appointments, promotions and expenditure.r6 We
may presume that such great influence was not left unused at a time
when the king entertained and caressed the dream of the caliphate.
The only overt official action which indicated Fu'ad's stand on the
caliphate was the manner in which Egypt fell out with the king of the
Hijaz. As is well known, the rulers of Egypt have been accustomed
since the thirteenth century to send to Mecca every year during the
pilgrimage season'for the sake of state'and'as anemblem of royalty',t?
the luxurious empty litter carried by a fine camel, known as the
mahmal,. Husain objected to the nwhmal, sent in tgz4 and ordered
the name of Fu'ad removed from the covering on which it was
embroidered. His reason was that putting on the name of the king in
this manner was 'an innovation without precedent' and that the
covering should be devoid of any 'political symbol or personal
emblem'. The Egyptian ofrcer commanding the escort of.the mahmctl
protested and made a military demonstration in front of the royal
palace in Mecca, and relations between the two countries were
severed.ss Husain seems to have been justifled in considering the
appearance of Fu'ad's name an innovation, for the custom apparently
was, at any rate since Egypt became part of the Ottoman empire,
that only the cipher of the Ottoman sultan should appear on the
covering;20 a change of this nature, in these particular circumstances,
was sigrrificant and Husain could be expected to resist it.
The propaganda in favour of Fu'ad's caliphate went on throughout
the year following the declaration of the wlama in March 1924. Such
propaganda must have been extensive and efiective, since we find
such an experienced political operator as Zaghlul confessing in 19z6
that he was afraid that public opposition to an Egyptian caliphate
would harm his electoral prospects.so As a specimen of such propa-
ganda we may consider the articles contributed by Shaikh Muham-
mad Faraj al-Minirawi to the Reaiew oJ lhe General Islamic Congress
Jor the Califhate in Egft.In the first number of the Review the shaikh
enumerated the advantages of holding the Islamic congress in Egypt.
Egypt [he wrote] has a long history of learning and civilisation. It is a
country where peace and tranquillity reign. It was and still is one of the
greatest of Islamic states in point of progress, civilisation, riches and
prosperity. Further, in some periods Egypt's place in the scale of
Iearning was so high that it became the cynosure of learned and wise
r86
 EGYPT AND THE CALIPHATE, t9r5-52
men. . . . There is no other Islamic state in the world which has done as
ntuch as Egypt in protecting the language of.theQur'an and in defending
Islamic Law.
Egypt, again, had a central geographical position and was fortunate
in possessing the Azhar. From the tone of these eulogies we may
conclude that more was involved than the mere venue of a congress.
In an article in the following number the shaikh discussed some
suggestions, which he claimed had been made in India to the efiect
that Egypt and India should cover the public expenditure of the
Hijaz and defend it against foreign intrigues and attacks. 'It is', said
the shaikh, 'as though the Indian people wishes in this way to charge
Egypt, as the nearest independent Islamic state, with responsibility
for the Hijaz, in point of expenditure and protection. fn fact', he
continued, 'the kingdom of Egypt has been alone for a long time in
providing for the sustenance of the Hijaz, out of the revenue of its
pious foundations, and out of the great sums donated to the Hijazis
by the occupant of the throne'.3r
The views which the shaikh so confidently ascribed to the Indian
people were somewhat off the mark. For as time went on, it became
increasingly clear that Fu'ad's ambitions were arousing opposition.
India, in particular, by no means showed enthusiasm for Fu'ad's
cause. The Indian Muslim community was shocked and disoriented
by the Turkish action; its traditional loyalty went to the Ottoman
sultan, as the Khilafat agitation had shown only a year or two before.
If the caliphate were now to be made the object of discussion, the
Indian Muslims were sure to bring to the fore the claims of Abd al-
Majid whom the Turks had so sacrilegiously deposed and expelled.
As regards the Arabic-speaking countries, it is true that Husain, who
had been proclaimed caliph in March 1924, found himself at the end
of the year devoid of kingdom and caliphate, a pensioner of his son
Abdullah and then of the British government; but there was no
reason to expect that his sons and their following in Iraq and the
Levant would joyfully proclaim their allegiance to an Egyptian
caliph. Neither was this to be expected from Ibn Sa'ud, the supplanter
of the Hashimites in the Hijaz. Whatever his original attitude, by the
time he had conquered the Hijaz, Ibn Sa'ud was greatly opposed to
Fu'ad's pretensions.s2 Another incident involving the mahmal in
r9e6 and resulting in bloodshed embroiled him with Egypt which, for
ten years, until Fu'ad's death, refused to recognise the Sa'udi
Arabian kingdom. It is possible that the conquest of the Hijaz
r87
 THE CHATHAM HOUSE VERSION
inspired Ibn Sa'ud with the ambition to acquire the caliphate, but
this is doubtful considering the known unpopularity in the Islamic
world of his Wahabi creed. But there was no reason why he should
acknowledge Fu'ad as his superior. We have a record of his views in
r93r which cannot have been much different from those he held in
;9z6. ln August of that year, the Syrian notable Adil Arslan in-
formed the American legation in Egypt that Ibn Sa'ud had told him

that he himself had no pretensions to the caliphate and that if he had had
there would have been no reason lor him not to have declared himself
caliph when he proclaimed himself king of the Hejaz, Nejd and its
dependencies. . . . On the other hand, he could not be expected to second
the aspirations of other claimants, such as King Fu'ad, since the question
was one which concerned the Moslem religious world as a whole, rather
than any one country and he shared the prevailing opinion held by
Moslem religious leaders that the reopening of the question of the
caliphate was calculated to breed dissensions in the Moslem world of a
character disadvantageous to the interests of Islam.38

So much then for Fu'ad's hopes in this quarter of the Islamic world.
As for the rest, it was better to leave Turkey out of the reckoning;
Persia was schismatic; the Maghrib was on the whole terra incognita,
and Morocco's ruling dynasty, in particular, claimed Quraishite
descent; and Indonesia, as we learn from a letter of Shakib Arslan's,
was divided on the issue: some of the Muslims of .]ava, he wrote to
Rashid Rida on the first day of 1925, expected nothing good to come
out of the congress in Egypt, some intended to protest against an
Egyptian caliphate, and most of them wanted the caliph to be in
Mecca.ea It was no doubt because opposition from so many quarters
showed itself, and because they had little hope of overcoming it
within the year, that the rector of al-Azhar and his colleagues (who
had constituted themselves as the administrative board of the forth-
coming Islamic congress) decided in January r9z5 that the congress
had better be deferred for a further year.86 In the event, it was not
until May tgz6 that the congress assembled.
Opposition to Fu'ad showed itself not only outside, but inside
Egypt as well. The nature of this opposition is described in a nutshell
by Rashid Rida:
Two groups of writers and journalists [he wrote] manifested opposition
to and criticism oI [the call for a congress]. The first consisted of a number
of heretics and atheists . , . the second, of those u'ho believe that the
r88
 EGYPT AND THE CALTPHATE, rgr'-52
partisans of the congress among the grand ulama arrd. others want to
establish the caliphate in Egypt. . . . The newspapers ot the Wafd or
Sa'dist party are at one with al-Siyyaso newspaper [the Liberal Consti-
tutionalist organl in denouncing the holding of this congress in Egypt,
and in denying the competence of the religious dignitaries to call for it;
these newspapers are also agreed that the establishment of the caliphate
in Egypt would harm, and would not benefit her.EE
Opposition inside Egypt declared itself almost as soon as tlle Ottoman
caliphate was abolished. In a newspaper article, the publicist Mahmud
Azmi, who then had Liberal Constitutionalist leanings, forcefully
rejected the idea of proclaiming Fu'ad caliph and declared his dis-
approval of the article in the Egyptian constitution which established
Islam as the official religion of the state.37 Mahmud Azmi's secularist
views may put him in Rashid Rida's first category, namely the
heretics and the godless. Opposition which was more clearly political
was expressed by Zaghlul and his Wafdist colleagues. It seems that
when the question of the caliphate was first mooted, Zaghlul went to
Fu'ad and asked him whether he wanted the caliphate. Since it would
have been fatal to his hopes to indicate officially that he wanted the
caliphate, Fu'ad could not but express his lack of interest, and this
no doubt suited Zaghlul, for he was not likely to welcome the great
increase in prestige and power which Fu'ad would obtain by becoming
caliph, and the king's denial would enable him to use, in seeming good
faith, oftcial influence in order to oppose and counteract the activities
of the caliphate committees which Fu'ad was secretly supporting;
we learn, in fact, that his minister of the interior, Fathallah Barakat,
issued orders to his subordinates in the provinces forbidding them to
have anything to do with caliphate committees.ss Government and
palace in tgz4 were, it is clear, ranged in a secret contest against one
another.
Zaghlul seems to have been even prepared to encourage other
candidates in order to defeat Fu'ad's ambitions. At the beginning of
tgz4, when Mustafa Kemal was contemplating the abolition of the
Ottoman caliphate, presumably in order to soften the blow inside and
outside Turkey, he appears to have ofiered Turkey's support to
Shaikh Ahmad al-Sanusi (d. rqSS) if he were to agree to become a
'spiritual' caliph, a Muslim pope, with a seat outside Turkey. The
shaikh then refused the offer, but it was renewed a year or so later,
when he seems to have become tempted by it. In January 1925 he
sent his private secretary to the United States high commissioner in
r89
 THE CHATHAM HOUSE VERSION
Constantinople to acquaint him with the new development, and he
stated that the shaikh seemed assured of his election as caliph since
he had the support of - among others - Ibn Sa'ud, the Imam Yahya,
and Zaghlul Pasha, whilst his only opponents were Fu'ad and the
ex-king of the Hijaz together with his sons.80
The Wafdists were not the only political party opposed to an
Egyptian caliphate. The Liberal Constitutionalists were as vehement.
Partly because Fu'ad's manoeuwes in internal politics during r9z3
had estranged them, partly because they mistrusted his appetite for
power, and partly because their intellectual leaders such as Lutfi
al-Sayyid and Husain Haikal preached a doctrine of strict consti-
tutionalism, the Liberal Constitutionalists publicly adopted towards
the caliphate question the same posture as the Wafd'. Their organ,
al-Siyyasa,took its stand on strict constitutional propriety by arguing
that since article 47 of. the constitution forbade the king to acquire,
without parliamentary authority, a plurality of dominions, Fu'ad
could not accept the caliphate without the sanction of the Parlia-
ment.ao The consequences of such a view, had it been put to the test,
are curious, since it meant that the Egyptian Parliament, a secular,
non-denominational body, had ultimate authority to institute - and
depose - the caliph of all the Muslims.
But an even more radical view was to emerge from Liberal Consti-
tutionalist ranks. In the early summer of tgz5, when speculation
about the caliphate was at its highest, Ali Abd al-Raziq, a divine and
a judge in the religious courts, the brother of Mahmud Pasha Abd
al-Raziq, one of the Liberal Constitutionalist leaders, published his
famous tract on Islam anil the Foundations oJ Authority,L2 in which he
argued that the caliphate was not properly part of Islam, and its
institution not therefore a religious duty. The argument is so novel,
both theologically and historically, that it could easily and with
considerable justification be denounced as a heresy. But in emptying
the caliphate of its sacral quality, in approximating it to secular king-
ship, Ali Abd al-Raziq, it is interesting to note, was following, albeit
in a more extreme fashion, the line of thought to be discerned in
Maraghi's memorandum of r9r5. Maraghi's memorandum, however,
was written in support of an Egyptian caliphate, while Ali Abd
al-Raziq's tract could not but constitute an attack on Fu'ad's ambi-
tions. One rvonders if, under a studiously academic disguise, this was
not the real purpose of the book, and that which determined its
timing, and also whether there would have been any official outcry
r90
 EGYPT AND THE CALIPHATE, r9r5-52
if the tract, boldly controversial as it was, had furthered, instead of
hindering, the designs of the king. For outcry there was: Ali Abd al-
Raziq was summoned before a tribunal ol wlama, convicted of holding
unsound opinions and deprived of his status as a doctor of religion'
It seems to have been generally known at the time that political con-
siderations influenced the trial and conviction, and that Fu'ad's
ambitions determined the issue. Ali Abd al-Raziq himself, at any rate,
after the trial, did not hesitate to attack the propaganda for an
Egyptian caliphate which he said was carried out by slaves and people
who had no will of their own.{z Ahmad Shafiq Pasha stated, in the
final volume of his Memoizs, that one of the reasons of the harsh
treatment to which AIi Abd al-Raziq was subjected was'the appear-
ance of this book at a time when a semi-official committee had been
formed in Egypt to inquire into the caliphate and endeavour to
realise it [sfcl'. He and some of his friends drafted a petition to the
king asking him to intercede on behalf of Ali Abd al-Raziq; the
petition - which was not sent - was to include a reference to the
caliphate and a statement to the effect that Egypt deserved the
office better than any other Islamic state, and that Ali Abd al-Raziq
did not intend by his book to call for a republic.ag
When Islam and the Foundations of Authority appeared, Muham-
mad Husain Haikal reviewed it favourably in al'Siyyasa of which he
was the editor. When the ulama attacked the book and announced
their intention to try its author, al-Siyyasa vehemently took up his
defence, and denied the competence and authority of the religious
doctors to try and condemn the expression of opinion. The first volume
of Haikal's Memoirs, where the episode is related, appeared in r95r
when Eg'1ryt was still a monarchy, and a certain reticence is visible in
the author's treatment of these events, but he does hint that the trial
took place at the instigation of the royal palace. For he says that the
ulama deived the power to try and sentence Ali Abd al-Raziq from
article ror of the constitution which left unchanged, until further
notice, the laws and regulations governing the administration of
religious establishments, thus removing them from the control of
Parliament: this provision, he then became convinced, was intro-
duced into the constitution in order to preserve'the absolute authority
of the palace' over the men of religion.{{
The cause of Ali Abd al-Raziq was thus to some extent publicly
identified with the Liberal Constitutionalist cause; it became wholly
so as a result of the trial. When the nlarzra sentenced Ali Abd al-Raziq
I9I
 THE CHATHAM HOUSE VERSION
to be deprived of his qualifications as a doctor of religion, they applied
to the secular arm to dismiss him from his judicial office. The secular
arm in question was the minister of justice, and the minister happened
then to be Abd al-Lziz Pasha Fahmi, the president of the Liberal
Constitutionalists who, with two other members of his party, had
accepted office in a coalition with king's men (who styled themselves
the Union party) in a ministry formed by Ziwar Pasha when Zaghlul
resigned from office after Sir Lee Stack's murder in r.g24. Abd al-Aziz
Fahmi now faced an awkward dilemma. Ali Abd al-Raziq's family
was one of the pillars of his Party, his cause - the cause of the
freedom of expression, and that of the secular state - was one which
the Liberal Constitutionalists were ostensibly dedicated to uphold.
To give in to the demand of. the ulama would have constituted for
Itbd al-Aziz Fahmi a grave breach of his principles, and he happened
to be, what is so rare in Egyptian politics, emphatically a man of
principle. Yet, there was no doubt that the palace, and the majority
of his colleagues, who were obedient to the palace, expected him to
dismiss Ali Abd al-Raziq forthwith. He tried to gain time by pro-
crastinating; he formed a committee of civil servants to examine the
issue and to report whether the minister was bound by a decision of
the ulanr,a's tribunal. But he was urgently pressed to dismiss Ali
Abd al-Raziq, and when he still delayed he himself was summarily
dismissed and Ali Maher took his place, who deferred to the wishes of
the palace. The episode again illustrates the close connection in Eg1ryt
under the constitutional monarchy between the internal and external
aspect of what Maraghi called'religious politics'and between so-called
religious and so-called secular issues. The publicist al-Aqqad, writing
of this incident in 1936, said that the Unionists, i.e. the king's men,
wanted on the one hand to punish a man who obstructed the king's
efforts to secure the caliphate, and on the other to embarrass the
Liberal Constitutionalists and force them to leave the Ministry..t
Whether or not the second design was as premeditated as the first,
the fact remains that the Union party, organised and directed by
Hasan Nash'at Pasha from the palace, thought it useful to dis-
seminate a pamphlet containing the text of the judgment against
Ali Abd al-Raziq:re we may presume that one purpose of such a
pamphlet was to tar with the brush of heresy any supporter or
defender of shaikh Ali, and since the Wald did not choose to defend
him, because this would have been to help their rivals the Liberal
Constitutionalists, only the latter party could with a semblance of
r92
 EGYPT AND THE CALIPHATE, r9r5-52
truth be denounced to the country as the source of heresy and irreligion.
The much-heralded congress to choose the caliph met in Cairo from
13 to r9 May 19z6. But the reasons which had led to its postpone-
ment in 1925 had not disappeared, had, if anything, intensified. In
Egypt itself, opposition to Fu'ad's ambitions appeared even among the
men of religion who might have been expected to be quite obedient to
royal wishes. Sympathy with Ali Abd el-Raziq in his persecution at
the hands of the palace, or Wahabi leanings encouraged by supporters
of Ibn Sa'ud in Egypt, may have been the cause. In any case, in
January l.9z6 the government is found busy investigating some forty
ulama in al-Azhar who had signed a petition to the efiect that Egypt
was not fit to be the centre of the caliphate' A little latbr, news trans-
pires of a group calling itself the Group oi the Islamic Caliphate
(Jama'at al,-khitafa al-islamiyya), led by a shaikh Muhammad Madi
abu'l-'Azayim, agitating for the congress to be held in Mecca not
Cairo; and Shaikh abu'l-'Azayim himself is found leading an 'unoffi-
cial' delegation to what might be called the anti-congress which met
at Mecca immediately after the Cairo congress.a?
It became therefore clear, even before the congress met, that there
could be no question of electing a caliph. At a meeting of the ad-
ministrative board on z5 April, Maraghi is said to have explained
that those attending the congress would have no offrcial representa-
tive capacity; this gave rise to a sharp discussion, and some otl,ama
asked whether this did not mean that those attending would be
merely giving their personal opinions, and whether this was the
original purpose of the congress; Maraghi then said that circum-
stances had changed since the congress was first mooted and that the
proclamation of a caliph by the congress was out of the question'48
lnhis Memoizs Maraghi's rival, Shaikh al-Zawahii, claims the credit
for saving the congress from utter failure. When he found that it was
impossible to proclaim Fu'ad caliph, he wrote, he decided that the
best way to preserve both Islamic unity and the dignity of Egypt was
to wind up the congress and forestall any damaging resolutions; the
pretext for this was to be that not all Islamic nations were rePre-
sented in the congress.ag Whether or not al-Zawahii may take credit
for it, the remarkable fact remains that the congress, which took two
years and two months to assemble, lasted barely a week, and held
only four meetings. For, as Ahmad Shafiq Pasha pointed out, the
ul,ama wtro had organised the congress found themselves in a quan-
dary: not only was there no chance of Fu'ad being proclaimed caliph,
r93
 THE CHATHAM HOUSE VERSION
but also each delegation wished to proclaim caliph the ruler of its
country. When the Egyptian wlama, he continucd,
found themselves members of a body deliberating over something which
had no chance of being realised or executed, they had no option but to
find a way out of this predicament. Three things were therefore decided,
which were not the fruit of research or scrutiny or the result of examina-
tion and strict enquiry. Rather were they a bare statement of how the
caliphate question at present stood. The delegations said that a caliphate
was obligatory! They then pointed out the impossibility at present of
establishing it among the Muslims! Finally they decided to found branches
of the congress in different Islamic countries so as to prepare further
successive congresses, as need be, in order to decide the issue of the
caliphate! In all this there was nothing new: it was all a means whereby
the lronourable body might find a way out of the narrow impassc into
which it had led itself.to

The deliberations of this congressBr in which were brought together

the highest religious authorities of Islam were thus from the outset
distorted and denatured by the desire to avoid the consequences of a
political miscalculation, and their conclusions cannot be taken to
mean what, at first sight, they seem to mean. Only a laborious effort
of exploration and reconstruction can restore their original political
sigaificance to these seemingly authoritative declarations, and these
ostensibly academic disquisitions. Documents such as the record of
the Cairo congress, or Ali Abd al-Raziq's tract arouse - and rightly so
- great interest among students of contemporary Islam, and owing
to the paucity and unreliability of other historical material the im-
portance of such documents is sometimes exaggerated and their
significance misunderstood. A warning is perhaps useful that just as
tracts produced in the course of religious strife in early and medieval
Islam may not be taken at their face value, so also may not be taken
on trust much of the political and social thought of modern Islam. In
fact, here, much more than in Europe, the history of ideas is an
unusually treacherous and demanding discipline. The least of the
difficulties besetting the student is that so many of these writings are
derivative, and to establish the exact derivation and the precise
channel of communication is not always easy. But an even graver
difficulty is that the exact purpose and significance of a piece of
writing may be expertly disguised and may not be discovered without
extensive and minute knowledge of political transactions. So far from
these productions providing a clue to the real state of mind of a
r94
 EGYPT AND THE CALIPHATE, r9T5-52
particular individual or a particular society -
which is the usual
assumption underlying so many histories of modern Islamic thought -
they themselves have to be painfully deciphered, and the key is
usually nothing grandiose like the fate of Islam or the nature of
Arabism, but only obscure intrigues and tenebrous ambitions. An
excellent case in point is that of Abd al-Rahman al-Kawakibi and his
writings. It has been shown that the two books he wrote Tabai'
at-Istibd,ad. and (Jmm al,-Qura, stand heavily indebted to the writings
respectively of the Italian Alfieri and of the Englishman Blunt. It has
also been shown that Umm al-Qura, with its advocacy of an Arabian
caliphate, may well have been a piece of khedivial propaganda,
destined to further the ambitions of Abbas II in Arabia and the
Levant.6r We now learn that Kawakibi's political activities are even
more equivocal than hitherto suspected. In a letter to George An-
tonius, who was gathering material for his Arab Awakeaimg' Rashid
Rida wrote that Kawakibi visited Somaliland 'in agreement '6i'l
iUrfoq) with Italy'. The inference that he was an Italian agent, as
well as a khedivial one, seems strong, and that Tabai' al'Istibdad, is a
crib from an Italian author becomes a suggestive and sigrrificant fact.
Our suspicions seem even more cogent and well-founded when we
notice that Rashid Rida is very reluctant to put down in writing all
that he knows of Kawakibi, for he ends his letter to Antonius by
promising to give more information by word of mouth 'since not
everything which is known can be spoken of , and not everything which
is spoken can be written'.68
The fiasco of the Cairo congress removed the caliphate for a few
years from the forefront of politics. The question was raised again in
r93r, but it was not Fu'ad who contrived to raise it. He merely
suspected that others were scheming to get hold of the coveted office:
the sharpness of his reaction to such a threat - whether imaginary or
not - indicates clearly enough that he was still prey to the same
ambition. Following the Palestine disturbances of tgzg, the mufti
of Jerusalem, Haji Muhammad Amin al-Husaini, sought to con-
solidate and systematically organise the widespread sympathy for
the Palestine Arab cause which these events aroused in the Islamic
world. As much to strengthen the Arabs in their fight against the
Zionists as to enhance his own prestige and deal a powerful blow to
his then uncowed Arab rirrals, the mufti in October rg3r called for
and began to organise an Islamic congress, to take place at Jerusalem
towards the end of the year. The Egyptian government soon showed
r95
 THE CHATHAM HOUSE VERSION
itself very hostile to this project. The mufti had announced that the
congress was to consider, among other subjects, the possibility of
setting up a Muslim university in Jerusalem. The Egyptian authorities
took this as a threat to the primacy of al-Azhar and were not pleased.
But what seems to have really agitated Fu'ad and his government
was the rumour that the caliphate was to be discussed and a caliph
possibly proclaimed.Er The king seems to have taken these rumours
seriously enough to invoke Italian help should the caliphate question
be raised. In August r93r Adil Arslan was telling the United States
minister that Italy supported Fu'ad's claim to the caliphate,66 while
a few months later the minister himself wrote that the Italian legation
had great influence with the king because Fu'ad hoped for Italian
support in improving his international position and advancing his
claim to the caliphate.bs But it seems that on this occasion the king
was concerned not so much to fill the ofrce himself as to prevent
others from filling it. The ofrcial Azhar Journal, Nur al-Isl,am, wlich
may be taken to mirror palace views, published in the second half of
r93r a warning that it was not to the interest of Muslims that the
question should be raised: the Cairo congress of. rgz6had, decided that
the time was not then ripe and this was still the case. Two months
later, Nur al-Islanr. returned to the charge in a more specific manner.
The Indian Muslim leader, Shawkat Ali, had made a statement to the
effect that the Jerusalem congress would have no reason to discuss the
caliphate, since there was still a caliph living, namely Abd al-Majid,
who had been expelled from Turkey and was now in Europe. Naz
al-Islam declared that Shawkat Ali's allegation was not correct, since
an assembly of. ulama meeting in Cairo in rgz4 had decided that
Muslims owed no allegiance to the deposed Ottoman caliph; and to
clinch its point, the journal reprinted verbatim the original statement
which had served, seven years before, by calling for a congress in
Cairo, to give notice of Fu'ad's claim to the caliphate.6? One particu-
lar circumstance may have made Fu'ad especially sensitive to this
renewed talk of a caliphate. The ex-khedive Abbas Hilmi was then
said to be canvassing support for his candidature to a Lebanese or a
Spian throne. To further his own scheme, Abbas Hilrni might be
expected to work against Fu'ad's oecumenical ambitions. Abbas
Hilmi's activities were thus doubly unpleasant, and one of the aims of
Sidqi Pasha, then Egyptian prime minister, in visiting the Levant
shortly after the Jerusalem congress was, according to the United
States minister in Cairo, to counteract and undo the ex-khedive's
r96
 EGYPT AND THE CALIPHATE, t9r5-52
machinations.ss Egyptian hostility to the congress was not in doubt.
Religious dignitaries publicly attacked it6e and oftcial displeasure
with anybody taking part in it was manifest. The Egyptian consul in
Jerusalem informed Cairo that he was refusing the invitation to
attend the inaugural session of the congress lest he should be taken to
be officially representing his government at the function.so The issues
involved become even clearer when we learn that Ali Al-Raziq took
up his pen to attack the Azhari shaikhs who were attacking the
Jerusalem congress, and that Nahhas, the leader ol the Wafd which
was on very bad terms with Fu'ad, desigrred to go to the congress in
person; in the event, it was Abd al-Rahman Azzam, then a Wafdist,
who was sent. His presence there was manifestly taken to be a demon-
stration against Fu'ad, and a speech of his at the inaugural session
was followed by protests from some pro-Fu'ad Eg'yptians: a distur-
bance of some twenty minutes followed, and the police had to inter-
vene.or The Palestine Arab opponents of the rnufti took heart, and
Hajj Amin, fearing for the success of his venture, had to visit Cairo
in November and assure Sidqi Pasha, both verbally and in writing,
that the caliphate would not be discussed at the congress.62 After the
congress, and until Fu'ad's death in 1936, the caliphate question
remained dormant. But there was no question of the king giving up
his claim or allowing any other claim to be entertained. In August
1933 a French newspaper suggested that the sultan of Morocco should
be made caliph. The Moslem Caliphate Society in Cairo thereupon
called a meeting to discuss this suggestion and drew up a manifesto
pointing out that nobody in the Muslim world possessed the qualifica-
tions necessary for the office. The significance of this move, commented
the United States chargd d'affaires, irrose from the well-known
ambition of King Fu'ad in respect of the caliphate.os A few weeks
later, the chargd d'afiaires had to report that the rector of al-Azhar,
shaikh al-Zawahiri, had issued an appeal to the Muslims to avoid
missionary schools; such an appeal might be considered likely to
disturb the public peace, by inciting one section of the population
against another, and yet the government took no action in the
matter. This, the charg6 d'afiaires, again commented, was attribut-
able to the influence of the king who desired to capitalise on the anti-
missionary agitation (which was just then loud and widespread) in
order to promote his pretensions to the caliphate.0a
A variety of circumstances contributed in 1935 to a great decline
in Fu'ad's position within Eg5rpt; a decline which the natural play of
r97
 THE CHATHAM HOUSE VERSION
rivalry between Egyptian politicians would no doubt have soon
reversed. But the king's health was failing and he died in April 1936.
The prime minister who was in office during the last months of his
reign was Ali Mahir who had been, in the past decade of Egyptian
politics, a king's man. But the king's weakening grip over the govern-
ment no doubt enabled him to follow, to some extent, a personal
policy. He seems to have decided that the caliphate was dead, and
that the question was not worth continuing estrangement from Ibn
Sa'ud.66 He opened negotiations with Sa'udi Arabia, which speedily
issued in a Treaty oI Friendship. Article one of the treaty is an
eloquent commentary on the previous state of Sa'udi-Egyptian
relations, for this article read: 'The Egyptian Government recognises
that the kingdom of Sa'udi Arabia is a free and sovereign state, enjoy-
ing complete and absolute independence'. A contemporary comment
by H. St John Philby, who was in Ibn Sa'ud's counsels, is note-
worthy. 'It is a mere coincidence, of course', he wrote from Ibn
Sa'ud's camp, 'that the treaty had, for all practical purposes, been
negotiated and sigrred within a week of King Fu'ad's death. But it is
for all that an interesting coincidence, for it is a matter of common
knowledge that the late king of Egypt had decided views and certain
ambitions in respect of Arabia'. 'Aly Maher Pasha', he continued,
'has achieved success where his predecessors have failed and he
deserves the warmest congratulations of all who have the Arab cause
in its widest connotation at heart'.60 Later events have made it a
moot point whether both parties - and their neighbours - would not
have reaped greater benefits from Ali Mahir's failure than they did
from his success.
One of those whom Philby praised for helping to negotiate the
Sa'udi-Egyptian treaty was the rector of al-Azhar, Maraghi.o?
Maraghi, as has been seen, was shortly afterwards appointed tutor to
King Faruq and established close personal relations with the palace.
From the start of his reign Faruq manifested certain leanings which
made Maraghi his natural ally. When his minority ended and he
assumed full powers, Faruq found in office a Wafdist cabinet deter-
mined to seize this golden opportunity of a young inexperienced king
just ascending the throne to eliminate once and for all the royal
factor in Egyptian politics, and to make henceforward impossible the
kind of coup d'titat by which twice during his reign, in r9z8 and in
r93o, Fu'ad dismissed a Wafdist government with a large parlia-
mentary majority, and unjustly robbed the Wafdist politicians of
rg8
 EGYPT AND THE CALIPHATE, r9r5-52
the fruits of office. But the Wafdists reckoned without the shrewdness
of Faruq and his advisers. For it soon became apparent that the king
desigaed to exploit his youth and good looks, and the hopes aroused
by his accession, to create for himself a popular following with which
to dispute the Wafd's hold on the country. When the ceremonies of
his accession were discussed, the king proposed that he should be
crowned and that, since the ceremony of coronation was hitherto
unknown to Egypt - and to Islam - the crown should be bought with
the proceeds of a public subscription. He also proposed, in imitation
of imperial Ottoman practice, that the rector of al-Azhar should gird
him with the sword of his ancestor, Muhamrrrad Ali. Finally, Faruq
proposed that he should go to pray at Al-Azhar on the Friday {ollow-
ing the ceremony of his accession. To all these proposals the prime
minister, Nahhas Pasha, declared himself opposed and Faruq had to
abandon them.0E But, as is well known, in his conflict with the king,
Nahhas was discomfited; he was dismissed from ofrce, the Wafdist
parliament dissolved, and Muhammad Mahmud, Maraghi's friend,
installedinoffice. Itwasbetwee rg37 andthe cou'pd,'itat of February
tg4z,whentheWafd,returned to office, that Maraghi was at the height
of his power and influence. One of the means which the king and his
ministers adopted in order to discredit theWafd, was to accuse it of
being under the control of the Copts, and to allege that Nahhas, the
nominal leader, was a mere puppet in the hand of his Coptic follower,
Makram 'Ubaid. As an example of this anti-Coptic campaign we may
take the rumours circulated in Cairo to the effect that it was Markam
'Ubaid and the Coptic element who had opposed the coronation
ceremony and that Makram was against Faruq being proclaimed
caliph.oo In this anti-Coptic campaign Maraghi and the Azhar
students seem to have played some part. In a radio broadcast in
February 1938 Maraghi denounced the Copts as 'foxes' and declared
that for Muslims to befriend them was to oppose God's law?o. In a
dispatch of 17 March, the United States minister in Cairo reported
on three newspaper interviews given by the rector to the effect that
Muslims should participate in Egyptian politics on a religious basis
and that the entire social life of Egypt should be conducted in the
light of Islamic teachings. The minister commented that these pro-
nouncements were believed to be an attack on the Wafd and on
Makram's dominant position in the Party: this was the general
opinion in the country. This attack on the alleged 'Coptism' of the
Wafcl had. its evident uses at a time when elections to replace the
r99
 THE CHATHAM HOUSE VERSION
Wafdist parliament were impending; the dispatch reported that
Muhammad Husain Haikal, then minister without portfolio whose
work at the ministry of the interior wasi connected with the electoral
strategy of the government,?l had said to journalists (his words not
being intended for publication) that Maraghi was being used for
political purposes, and that nothing further would be heard from the
shaikh after the elections. Haikal's statement was presumably
desigaed to allay fears of a general systematic attack on Christianity
and Christian missionaries; such was also the purpose of the heir
apparent, Prince Muhammad Ali, when he insisted, as the dispatch
reported, that the rector's declarations were in reality anti-Coptic
rather than anti-missionary. This attack on the Copts must have
helped to increase tension, and worsen relations between Muslims
and Copts, for the dispatch records the receipt by the legation of a
letter from a copt at Damanhur complaining that Christianity was
publicly defamed by a Muslim and that he himsell had been sum-
moned to the police station where the oftcial candidate had made
threats against him. The dispatch enclosed a newspaper report to the
effect that Azhar students went through the streets of Shubra in a
demonstration shouting: 'To Palestine with the Copts', and that a
lawsuit was being instituted at Abu Tig against a Copt for having,
allegedly, thrown a Quran on the ground and having said improper
things about the rector of al-Azhar.?z
But it would be a mistake to regard Maraghi's declarations as mere
attacks on the Copts. They asserted also, in an extreme and uncom-
promising manner, the primacy of Islam in Eg:yptian politics. In an
interview with the newspaper al-Balagh Maraghi stated that he did
not engage in party politics, but that Islam was bound up with every
facet of life. 'Neither the Koran, nor the traditions nor our theology',
he said, 'can be understood without a knowledge of the politics of the
nations and the history of their social lives'. 'No Moslem', he con-
tinued, 'can say that he does not engage in politics. Were he to say so,
he would be igrrorant of his religion. How could he make such a
sweeping statement', he asked, 'since his religion has laid down the
principles governing peace and war, treaties and alliances? It is
indeed stipulated that the mufti should be aware of the events of his
day'. The rector denied that he was engaging in anti-Coptic propa-
ganda, but he did not hide his wish to see Eg'1pt ruled by the dogmas
and the ethics of Islam: 'f will even go a step further and say that I
personally wish to see Islam rule over the social life of Eg51pt, because
2o,0
 EGYPT AND THE CALTPHATE, tgr1-sz
the great majority of the inhabitants of this country are Moslems,
and because the official religion of Egypt is Islam and nothing else'.
The rector disclaimed working for any particular party, 'but I do
engage in religious politics and the politics of Islam. I do so as much
for the interior as for the exterior of the country'. In another inter-
view, with La Bowrse Egyptienne, Maraghi added that he would like
to see Islamic jurisprudence adopted in Egyptian legislation.?r In
a later dispatch, the United States minister reported that Maraghi
had been giving a series of interviews in which he said that it was
desirable for Muslims to participate in Egyptian politics on a religious
basis.Tl
On his own admission then, Maraghi was a political divine who
considered it his duty to engage in 'religious politics and the politics
of Islam' both inside and outside Egypt. But what, in the context of
Egyptian politics at that time, did such assertions mean? The answer
is suggested in a passage of an address which the rector broadcast in
February 1938 on the occasion of the Islamic festival of id al,-adha,
which that year coincided with the birthday anniversary of King
Faruq. The broadcast as a whole was a defence of Islam, an exhorta-
tion to Muslims to cherish their faith, and an attack on the 'cunning'
Christian missionaries who were subverting the beliefs of the Muslims.
But the rector began his broadcast by a reference to Faruq. 'The union
of two holidays after His Majesty has become the ruler of the country',
he said, 'is a sign that Faruq's birthday is an Islamic holiday as well
as a national festival for all Egyptians whatever their different
religions and creeds'. 'The Holy Azhar, professors and students', he
continued, 'present their loyal and sincere congratulations upon the
two events to His Majesty King Faruq. May God grant him a long
and prosperous life for humanity in general and for the Islamic
religion in particular'. The reference to Faruq's birthday being an
Islamic holiday is curious. Birthday celebrations, in respect of living
persons at any rate, are unknown to Islam. Traditional Islam, like
traditional Judaism, in the words of Ecclesiastas, VII: r, holds'the
day of death better than the day of one's birth'. Birthdays of Muslims
are notoriously difficult to trace, and if the anniversary of the
Prophet's birthday is commemorated by a festival, we must also
remember that this day is also the anniversary of his death.?5 The
celebration of a Muslim's birthday is clearly a modern western im-
portation, and if a Shaikh of al-Azhar chose to describe the occasion
as an Islamic holiday, we must conclude that this was nothing but a
 THE CHATHAM HOUSE VERSION
political act designed to enhance Faruq's position and his popularity.
And this chimed in with the policy which the king and his palace
advisers were then pursuing, namely to present Faruq as an Islamic
All devices would be useful, what-
as well as an Eg'5rytian sovereign.
ever their provenance, provided they served to surround the king with
reverence and raise his position far above that of any politician,
however powerful. Hence the simultaneous demand for Faruq to be
crowned and to be girded with his ancestor's sword; hence the
attempt to invest his birthday with a spurious Islamic aura. Report-
ing on Maraghi's broadcast, the United States minister commented
that Maraghi's words had weight, as coming from the rector of
al-Azhar and by reason of the king's interest in Islam. The king's
strict observance of ritual, he went on to say, brought the influence
of al-Azhar to bear on his side in the recent conflict wtth the Wa.fd,.
The prestige of al-Azhar, the minister further said, mounted with that
of the king, to whose hold on the people Al-Azhar had contributed to
an important degree, and it was, in his opinion, to be expected that
Muslim religious authorities should thenceforth have something to say
on public affairs in Egypt.?0 'Religious politics' then, in Maraghi's
eyes, meant in efiect support by al-Azhar for Faruq, in his attempt to
establish his autocracy in Egypt. Other episodes confirm such a view.
After France's defeat in the summer of r94o, Faruq became quite
reluctant to do anything which might alienate German and Italian
sympathies. This meant at the very least that the letter of the Anglo-
Egyptian Treaty of Alliance, signed only four years before, should be
whittled and its spirit denied. In furtherance of this policy, Maraghi
in the autumn of r94o preached a serrnon in the Rifa'i mosque
saying that the war was no concern of Egypt, and that she should not
therefore be exposed to dangers such as air raids, which the presence of
foreign troops created.T? When Nahhas became prime minister in
February t942, agjtation against Maraghi was organised in al-Azhar
and Nahhas demanded his resignation, but Faruq supported Maraghi,
who remained rector but ceased to attend al-Azhar for some ten
months.?8 As the tide of war in the middle east receded, the king's
and Maraghi's ability to oppose Nahhas became stronger, and in the
autumn of 1943 and the winter of ;g44 there were reports of Azhar
students being aroused against the Wafdist government on a variety
of pretexts, relating both to politics and to their stipends and employ-
ment prospects.?0 His biographer, quoting the unpublished memoirs
of his son, Abu'l Wafa, says that a sustained attack against Maraghi
202
 EGYPT AND THE CALTPHATE, T9t5-52
was launched then by eminent writers and that he was denounced to
the British ambassador.so But Nahhas was dismissed in October rg44
and Maraghi died in office on zr August 1945. His successor was
Mustafa Abd al-Razig, member of the well-known Liberal Constitu-
tionalist family, and himself an eminent member of the party. His
appointment was the occasion of a show of that royal wilfulness and
arbitrariness which the Liberal Constitutionalists - with whom
Maraghi, as has been seen, was at the outset connected - were dedi-
cated to combat, aurd again exhibits, as does Maraghi's career, the
fluidity of political loyalties in Egypt. Mustafa Abd al-Raziq was not
a member of the 'Areopagus of the Grand Ulema' among whom the
rector had, by law, to be chosen. The king wished him, nevertheless, to
be rector: a change in the law, purely ad personam in character, was
immediately effected, and Mustafa Abd al-Raziq became rector.sr
Maraghi, as has been seen, insisted that the 'religious politics' in
which he engaged related to the exterior as well as to the interior of
Egypt, Nor was there any doubt as to what he meant, for at that time
he was also making public declarations expressing his scepticism
towards projects of Arab unity, and exhorting the Muslims to strive
for greater mutual understanding and closer union.sl But as in the
case of Egyptian politics proper, such declarations were more than
general academic exercises; they must be seen in the context of a
specific political ambition which the king, Maraghi's patron and pupil,
nursed at the time;the ambition, namely, to obtain the caliphate for
Egypt and himself. At this distance of time the ambition seems to us
ernachronistic, overtaken and made futile by the rise of new interests
and attitudes in the Islamic world. But Maraghi had grown to man-
hood when the sultan-caliph still reigaed in Istanbul; both he and the
king were very close, through direct personal involvement or through
family tradition, to the events and discussions which followed the
'furkish abolition of the caliphateintgz4; and they clearly regarded
the office as a great prize worth striving for. We do not know whether
it was Maraghi who inspired the king with this ambition, or whether
it was Faruq himself who decided to take up a line of policy tradi-
tional in his house, and required Maraghi to further it through his
office and influence. Maraghi, in any case, no longer depended on the
patronage of others and as rector could use his prestige to establish
and extend the new king's authority. He was now a power on his
orvn, and no doubt reasoned that 'religious politics' would be profit-
able to the religion, to the monarchy, and to himself. He believed, as
203
 THE CHATHAM HOUSE VERSION
we know, that politics and society in Egypt should be ruled by Islamic
principles, and the caliphate was an essential aspect of Islam. So that
notwithstanding his role in settling the caliphate issue with Ibn
Sa'ud, Maraghi now worked to obtain for Faruq what in his own
youth and middle age he had considered the highest ofrce which a
Muslim could attain. Rumours began to abound that Faruq was soon
to be proclaimed caliph, and that Maraghi had invited Muslim notabi-
litiesto Cairo to discuss the matter. An Egyptian journalist questioned
Maraghi about these rumours, and he denied them; but when the
journalist asked whether this denial meant that the caliphate question
would not be raised again, Maraghi said: 'No, this is another matter
and depends on circumstances and what God decrees'.8g Some three
months later, it transpired that Maraghi was indeed thinking of a gen-
eral Muslim assembly in Cairo; it would be a 'legislative assembly' and
would examine and reinterpret the Muslim principles of private and
public life.8{ The purposes to which such a'legislative assembly' could
be put are obvious. Maraghi and the palace seem to have worked to
good purpose, for in the autumn of 1938 there assembled in Cairo an
'Arab and Muslim Interparliamentary congress for Palestine' - the
conjunction of the epithets, Arab and Muslim, indicating well the
reach of Egyptian ambition in those days - at which there was, so the
United States charg6 d'affaires reported, a disposition among certain
of the delegates to proclaim Faruq as caliph. Cooler heads, the chargd
d'affaires added, induced these to desist on the ground that the
congress had been called for another purpose and that it would be
best to consider the caliphate on some later occasion.so The congress
was nonetheless made the pretext of demonstrations in favour of
Faruq's caliphate. The reading of the delegates' names at the
opening session ended with shouts, 'Long Live the King of Egypt
Faruq I, Commander of the Faithful'. Again, in January 1939, when
the Arab delegates, assembled in Cairo before proceeding to the
Palestine Round Table Conference in London, accomPanied the king
to the mosque one Friday, the royal enlourage prevented the imam
from officiating as usual, and Faruq himself led the congregation in
prayer as was the prerogative of a caliph.86 It is significant that the
Sa'udis, who had so recently thought to bury the caliphate issue, were
absent from the congress. In the months following the congress
propaganda for Faruq's caliphate must have continued, or even
perhaps intensified. In his Memoirs Muhammad Husain Haikal
records a conversation he had with the assistant chief of the royal
20'4
 EGYPT AND THE CALIPHATE, t9t5-52
cabinet, Kamil al-Bindari, who was deputising for his chief, Ali
Mahir, then representing Eg1ryt at the Round Table Conference on
Palestine which took place in London in February-March 1939. At
that time, Husain Haikal writes, certain notions relating to the
restoration of Islamic form of government, to which Ali Maher was
sympathetic, but which he had taken care not to have attributed
directly to the palace, began to be propagated more than ever, and
the palace wits no longer reluctant to have them ascribed to it. In the
course of their conversation, Husain Haikal and Bindari came to
discuss this Islamic form of government:
I said to him then: 'But some of the principles of the Egyptian
constitution are quite difierent from those of such a government'. He
answered: 'No, the Egyptian constitution confirms and supports the
Islamic form of government'. I said: 'How can this be, when one of the
principles oI the Egyptian constitution is freedom of belief? When the
constitution allows a Christian to change his religion to Islam or some
other creed, and the Muslim to change his to Christianity or any other
creed - whilst the Islamic form of government requires the apostate from
Islam to be punished with death? Further, does not the Egyptian con-
stitution stipulate that Egypt is a hereditary kingdom, and that the
family of Muhammad Ali is the ruling dynasty, whilst the Islamic
caliphate is elective to the point that a ruling caliph could obtain the
election oI his son after his own death, and yet the doctors of religion
could then say that such an election was unlawful? Again, how can this
be, when the Egyptian constitution stipulates that treaties to which
Egypt is a party have to be observed, and the Pact of Montreux of 1937
[which abolished the Capitulations], in order to prevent discrimination
against foreigrrers, requires Egyptian legislation to conform to principles
obtaining among the western signatories, and not all of these principles
agree rvith those of Islam?'Al-Rindari Pasha answered me: 'All these
are details which can be adjusted to the Islamic form of government;
there is nothing in them which will make adjustment impossible'.rr

The outbreak of war in August 1939 perforce arrested all these

endeavours. They were the last occasion on which it proved possible,
in the exceptional period stretching from r88z to rg1z, for the man
of religion, if like Maraghi he had a measure of ability and personality,
to manifest some independence and aspire to be not entirely sub-
servient to the man of the sword; for the impression is strong that in
his speeches, declarations and activities, Maraghi was not the mere
agent of the king but was behaving as the head of an important
interest in the country, who had to be pleased and conciliated, whose
205
 THE CHATHAM HOUSE VERSION
opposition could be formidable and whose support had to be bargained
for. Very soon after Maraghi's death, the usual primacy of the sword,
and the usual subservience of the pen came, once more, speedily to
be the rule.
In any case, in May r94r, when Mr Eden announced British support
for an Arab union, new prospects beguiled the king of Egypt, and he
came to give his support to the scheme of an Arab League. In trying
to make Egypt the champion of pan-Arabism Faruq was seeking to
gain the same primacy which eluded him and his father in their
dogged pursuit of the caliphate; and the very length and pertinacity
of this earlier pursuit illuminates and makes more intelligible the
later vicissitudes of Arab League politics. A document exists which
sheds some light on Faruq's change of policy. Fu'ad Abaza formed in
Cairo in 1942, most probably under official inspiration, a society
called the Arab Union, and presented a memorandum to the king
arguing the case for Arab unity. When the king received him in
audience, he asked to be forgiven for having declared, in the memoran-
dum, that the caliphate question bristled with diffrculty and that it
was better to cease discussing it. It was known, said Abaza, that the
question had been raised during Fu'ad's reign, and there were
rumours that this and Eglrytian ambitions in the Hijaz had created
a misunderstanding with Ibn Sa'ud. In view of all this, Abaza
wondered whether he had done right in criticising a scheme which
was universally known to have the backing of the palace; but Faruq
said, according to Abaza: 'My late father studied fully the caliphate
question and wrote in a memorandum shortly before his death that
he had given up thinking of it'. Faruq added that Ibn Sa'ud was to
be informed of this, so that the misunderstanding might be finally
removed.ss But the ambition of an Egyptian caliphate died a most
reluctant death. In the midst of the deliberations on the scheme of
Arab unity an echo of the old propaganda was still to be heard. Cairo
Radio broadcasting to the middle east at the end of. t943, reported
that during the celebrations of the Muslim new year, the crowds in
Cairo cheered Faruq with cries of 'Long live the Commander of the
Faithful' and 'Long live the Caliph'.ee And even after the formation
of the Arab League, in which Egypt was acknowledged by the other
members to have the primacy, Faruq still showed a hankering for the
office. In the spring of. tg5z, Faruq is said to have instigated Shaikh
Makhluf, the shaikh of al-Azhar to issue a fatwa attacking the then
foreigrr minister of Pakistan, Zafrullah Khan, for being an Ahmadi,
zo6
 EGYPT AND THE CALTPHATE, rgr'-52
lest silence over this sect - which was then being violently attacked
by the ulama in Pakistan - might endanger the prospects oi his
caliphate.oo At about the same time a committee was got up in the
palace, which conducted researches and found that Faruq was
actually a descendant of the Prophet! This was as late as May 1952.
The principal authority for this statement must have been one par-
ticular member of the committee, namely Shaikh al-Biblawi, naqib
al-ashraf of Egypt, the head, that is, of the corporation of the
descendants of the Prophet in that country, ohe of whose traditional
responsibilities was to possess a good knowledge of genealogical
matters, to keep a register of descendants from the Prophet's tribe,
and to examine the validity of alleged Quraishite genealogies.el
This complaisant genealogist was assisted in his labours by two court
ofrcials and for public relations aspects by Karim Thabit, the
journalist of Syrian Christian origins, whom Faruq took up and
made his press adviser.oz In this curious committee the venerable
caliphate suffered its last agony, and expired hanging from a fake
genealogical tree.

207
Appendix

Maraghi's Letter to Wingate

To his Ercellency Genetal Sir Reginald Wingate, Goaernor General oJ

lhe Suilan.

I have the honour to submit to your Excellency the following remarks'

In the Arabic columns ol the Sud,an Times I read the translation oI
an article published by The Times newspaper on z4th April. In this article
I read the following clause.
We may now be able to say that the actual situation of the khalifate
is both strange and peculiar. The ruling in this question is that the
khalifa should belong to the tribe of the Prophet, i'e. the "Koreish".
It is evident that the present sultans of Turkey are not in a position to
claim this honour. They have, however, three reasons for the main-
tenance of the title. Firstly because they gained the title from the last
Abbaside khalifa who lived in Cairo in the year r5r7. Secondly because
the sultan of Turkey is the guardian of the holy relics of the Prophet,
i.e. his mantle and hairs of his beard. Thirdly, because the sultan of
Turkey is the acknowledged ruler aud defender of the holy places.
A fourth reason may be added to this, namely that the sultan of Turkey
is acknowledged as the khalifa of the Moslems because he is considered
as the greatest living Mohammedan.

This is the clause which has induced me to write this explanation to

you, because it is my greatest desire that the true lacts of the case should
be fully known to you, as I am well arvare that your Excellency is always
keen to know the truth and especially the sound views regarding the
question of the khalifate.
The condition that the khalifs should belong to the tribe oi Koreish
has been maintained and supported by a party of 'Sunnites' called 'EI
Masha'ara' and by members of another party called 'EI Mutazila'. The
reason for the appearance of this condition (which seems to be incon-
sistent with the general spirit of the religion) is due to the follorving
facts.
When the 'sahaba' (friends of the Prophet) had a certain disagreement
among them on the day of the 'sakifa'' after the death of the Prophet

r This is a well known bistorical event when all the friends and followers of tbe
Prophet collected under the roof of el-Sakifa which means a thatched enclosure.
zo&
 APPENDIX
the'Ansar'told the 'Muhajirin' that an emir from each party will have
to be chosen alternatively. To this Abu Bakr retorted that the idea was
abs'rrd, that the emir must be chosen from the tribe of 'Koreish'. In
support of his statement, he repeated the Hadith of the Prophet, 'The
imams must be from Koreish'. This brought their dispute to an end at
once and the people offered their allegiance (baia) to Abu Bakr and
acknowledged him as khalifa. No objection was raised as to the truth-
Iulness or genuineness of this 'Hadith' and hence it was considered that
their agreement was a sufficient proof that the khalifa must be a 'Kurashi'.
To counterbalance this opinion, there are also other opinions which
have been expressed by several other Mohammedan parties, who do not
consider that this should be conditional in the choice of the khalifa. It
should not be forgotten that the universal acknowledgment of all
Mohammedans throughout the world to the sultans of Turkey as khalifs
is a sufficient proof that they respect the latter opinion, i.e. that it is not
necessary for the khalifa to be a Kurashi.
This idea has been always supported by free thinkers among the
Mohammedan ulema in all times. Besides its being logical it agrees with
the fundamental teachings of Islam. It is very true that a qualified
'Kurashi' who answers all the other conditions, if found, should have the
precedence to any other.
In order to prove that the mere choice of a 'Kurashi' was not in any
way obligatory from a purely religious point of view, according to the
great ulema of the faith, it may be permitted to mention a simple fact
which would explain the case.
The majority ol ulema are unanimously agreed that the rulings of the
Mohammedan law are based on certain principles which make it always
in agreement with the interests of the general well-being. Only matters
afiecting the conduct of worship are accepted as obligatory in the form
they were enacted and elicit no trial and enquiry. Of these I may quote
as an example the number of Kneelings that are necessary in prayers.
In the question of the khalifate there is nothing which should be
included under this item, i.e. questions of worship. On the contrary the
question of the khalifate is a purely worldly one and has certain connec-
tions and relations with religion. The khalifa is in all respects a king
who exercises over his subjects certain powers he derives from the Holy
Books. Other kings govern their subjects by laws enacted by productive
brains.
Hence it may be obvious to discuss the reasons and the motives which
caused the Prophet to make such restrictions about the khalifate in his
'Hadith'.
In answer to this I may say the following.
It is rvell known that the Arabs in the old times never had any form of
government or political methods such as exist in these days. Their system

209
 THE CHATHAM HOUSE VERSION
of government before the appearance of Islam was very peculiar and far
from organisation and unity. Islam has established unity and cohesion
among the various independent tribes of Arabs, who had different tribal
habits, customs and traditions. It is evident that the spirit of faith alone,
if not supported rvith sufficient Power, is insufficierrt to ensure continued
peace and tranquillity among people because the ambitions ard interests
of men are so difterent that it is not possible that religion alone could have
sufficient control over them,
Religion must be supported by temporal Power to ensure that its
teachings are adhered to and carried out.
In those days no other Arab tribe was in a position to contest or com-
pete with the tribe of Koreish with regard to its moral and dignified
tribal position. This was the reason why the Prophet intimated that the
khalifa should be from the Koreish. Besides it was considered at that time
that it would be detrimental to the interests of the Arabs and the sacred
cause of religion to allow the election of the khalifa to be universal and
general. He was afraid that this will lead to disagreement and dissension
among the Arab tribes. Under the circumstances it was exceedingly rvise
to confirm the khalifate in the tribe of Koreish which was then the leading
and most enlightened tribe among the Arabs,
It is evident that things which depended on the special conditions and
reasons obtaining at one time will only remain and continue to exist as
long as these conditions and reiutons existed, and will be discontinued
when they vanish away.
At a certain time the Arabs became scattered and the unity of the
khalifa was dissolved. At this time the Persians and others appeared on
the stage of power and organisation while the Kurashis had nothing
beyond the honour of the name which was devoid of the original meaning
and sense,
If the Mohammedans insist on the title (Koreish), they would be
showing a dangerously poor knowledge of the true principles of religion,
This would mean that they depend on meaningless words. The bitter
experience they had in the past and the severe lessons they can recall
from their national history could prove to them that their disunion and
rigid adherence to the letter of religion is dangerous and that the time
has come for them to wake from their lethargy and to start to explain
religious matters in a manner that agrees with logic and sound reasoning.
These are the reasons which induced many of the religiovs ulema, now
and in the past to say that the condition of the khalifa being a member
of Koreish was not necessiary.
This is not the only point which supplied a reason lor discord among
the Muslims, but there n'ere many other matters which caused hot
literary contests among ulema, and even much fighting and bloodshed'
I am sure if these people could be brought back to existence in this
2ro
 APPENDIX
country, they would no doubt feel asltamed of the differcnce and friction
they created in their time.
We are now in face of events which will be recorded in history and justly
decided. This is why I have choseu to give you my opinion on the matter,
so that you may be able to know that the appropriation by the sultans of
Turkey oI the title of khalifa is in no v/ay contrary to the principles of the
faith, although they are not from the tribe of Koreish. It may, however,
be admitted that some oI the Ottoman khalifas might have held the title
unlawfully for some other reasons which I will not endeavour at present
to explain.
In this connection, I must not omit to state that my object and the
only motive in writing this explanation is simply to defend an historical
and religious principle. I am far from trying to defend the sultans of the
Ottoman empire and proving that it is wrong and illegal to break down
their khalifate. This is a totally different matter and has absolutely
nothing to do with the question I am discussing now. I am simply explain-
ing as I said before an historical and religious question.
The Mohammedans are free to measure the value of the Ottoman
khalifate by the actual benefit they have obtained from its rule and the
religious success they made. I am positive that things are judged by their
good results. If the Mohammedans consider, as I am inclined to hold, that
their faith has reaped no good from the Ottoman khalifate, they are
evidently the best judges as to whether the Ottoman khalifate should be
changed or not. They can very easily find an example in the deposition
by the Turks of Sultan Abd-ul-Hamid and the appointment of his succes-
sor. Their reason in the step they have taken was that the country made
no progress in the time of Abd-ul-Hamid. The Mohammedans can now
decide on the situation from the actual conditions of the empire under
the new khalifa.
It is most useful to probe this question and explain it fully and lay it
before the British public opinion and the competent authorities of the
British government. It is equally very beneficial to the Moslems in the
presence of these great events which might result in the complete over-
throw of several thronei. If the question oI the choice of khalifa could be
discussed and determined, it would be most important that this is oppor-
tunely declared.
The reasons mentioned by The Times are not correct with the exception
of the fourth reason, which should depend on the agreement and accep-
tance of the Moslems. Such an acceptance is considered to be in a certain
sense a sort of'Bai'a' from the public in addition to the approval of
special people which had to be taken on certain occasions by the sultans
of Turkey. On such occasions the 'Bai'a' was taken from high personages
in the kingdom and people of authority.
The possession of the holy relics, such as the mantle of the Prophet and
2IT
 THE CHATHAIU HOUSE VERSION
a few hairs of his beard and the maintenance of the holy places, are uot
considered by the Moslem ulemo to be a strong reason. Besides, it is not
easy to believe the story about the mantle of the Prophet or the hairs of
his beard.
The difficulty in the question of the khalifate is not limited to the
question of his being a Koreishi or not, but the most difficult problem as
far as we know is confined to the agreement of all the Mohammedans in
the choice of the rigbt man, who could be entrusted to take over the
responsibility oI this most dignified post, when the question of choosing
a khalifa is brought under discussion.
It is not very easy to unite the various ambitions which disagree with
each other. If one begins to consider these difficulties he is bound to fall
into despair. Iu the presence of all these difficulties, if a man could be
found who is well known and highly respected and honoured by Moham-
medans, who could claim special qualifications and capacity, these
difficulties may be surmounted.
A glance at the history of the khalifate since its existence up till the
present time is sufficient to prove that this matter stands in importance
far above any other question in the eyes of the Mohammedans. It is not
a general question which is definitely explained by religion, nor is it a
question of worship connected between man and his Creator. It is simply
a worldly question which has been most intimately connected with the
Mohammedan faith. Such questions have always given rise to great and
serious disagreement and ambitions. I sincerely hope that the Moslems
will be able, in the face of all these difficulties, to wake up and consider
their interests first when the time comes for them to decide for themselves.
Please accept my heartiest resPects.
(Sf.) Mohd. Mustafa

212
8

Pan-Arabism and British Policy

In the years following the first world war, pan-Arabism was the only
political doctrine to make headway and to exert a powerful appeal
in the Arabic-speaking lands. The nature of the war settlement itself
and the political power which some of the leading votaries of this
doctrine acquired in consequence of the settlement contributed alike
to such a result. The situation developed suddenly, with revolu-
tionary abruptness. Men who before the destruction of the Ottoman
empire were quite obscure, emerged all at once after r9r9, not only
to preach a doctrine which got the Arab east into its grip, but actually
to exercise political power in one of the former provinces of the
empire. In r9r4 such a state of affairs was impossible to imagine. It is
true that there were then murmurings in Beirut, and that Synan
imigris in Cairo were demanding a decrease in meddling from
Istanbul and the enlargement of local initiative. But these grievances
were local and specific; they related to the quality of government
services or to the proper scope of local administration; and those who
sought redress for such grievances were mostly men well known in
their communities, able perhaps to conduct a sober constitutional
opposition but not to entertain grandiose, limitless ambitions. How
they would have fared under imperial rule, where their opposition
would have taken them, how the Arabic-speaking provinces would
have developed under their leadership, it is now impossible to say.
The war made Britain and the Ottoman empire enemies; Britain
fomented a revolt in the Hijaz against the Ottomans, and to this
revolt gravitated a number of disaffected Ottoman officers who, when
the war ended with the triumph of their patron, claimed the leader-
ship of the Arab movement and were eventually enabled, by devious
and complicated means, to obtain political control of Mesopotamia,
where they set up government as the kingdom of Iraq.
The new leaders thrown up by the war were pan-Arab by nature.
213
 THE CHATHAM HOUSE VERSION
They came to politics not through consideration of concrete diffi-
culties or the grind of pressing affairs or daily responsibility, but by
way of a doctrine. Their doctrine was compounded of certain Euro-
pean principles which made language and nationality synonymous,
of a faith in sedition and violence, and of contempt for moderation.
They believed that the Arabs, because they spoke Arabic, a language
different from Turkish, were ipso facto entitled to secede from the
Ottoman empire and to form a state whereeverybody who spoke Arabic
would be included. They were not ambitious for the community they
knew, or the locality where they were born and reared. The European
doctrine of linguistic nationalism with which they were imbued, the
oecumenical claims of the Arabian caliphate the glories of which
they aspired to revive, the impetuosity of their youth, and the
insigaificance of their origins and their prospects alike combined to
help them nurse ambitions to which only their dreams could set a
bound. As one sympathiser with Arab nationalism, Professor H. A. R.
Gibb, put it: 'The Arab nation . . . like all other nations, is not an
entity of geographical or historical association, but the function of an
act of will'.l
The will of these young ofrcers willed an Arab nation, and ethno-
graphy, geography, or history were of consequence only as they
offered sustenance to their imagination. When, therefore, the
miraculous circumstances gave them suddenly a country to govern,
it was not gratitude to fate and their patrons that they felt, but
rather that they were cheated of their dream. They had desired an
Arab nation and an Arab state, and they got lraq, a specific country
with specific frontiers. They denounced the imperialist dismember-
ment of the Arab nation, and called the boundaries drawn up at the
peace settlement arbitrary and artificial. This was indeed true, for
what otherwise can boundaries be when they spring up where none
had existed before? These ofrcers, of course, did not think to blame
themselves for having, by their disaffection, helped the Powers they
were now denouncing to defeat the Ottoman empire and thus to
erect those hated boundaries. With the establishment of these men in
the government of Iraq, therefore, pan-Arabism itself was endowed
with a political base from which to prepare future incursions. The
settlement of. r9zr, which created the kingdoms of Iraq, contained
the seeds of its own destruction; for it gave power to men who were
intent precisely on overthrowing such a settlement.
The ambitions of these men were, to start with, confined to the
2I4
 PAN-ARABIS}I AND BRITISH POLICY
Fertile Crescent, so-called - Iraq, Syria, Palestine, and the Lebanon -
the stage on which, during their youtir under the Ottoman empire,
their dreams were accustomed to play. Between the wars, and after
the outbreak of the second world war, their efforts were bent on
securing a dislodgment of the French from Syria and the Lebanon,
and a curtailment or, if possible, a suppression of Zionist activities in
Palestine; thereafter, on putting together a unitary or a federal Arab
state embracing the Fertile Crescent. This was the burden of Nuri
al-Sa'id's proposal to Casey, minister of state in the middle east, in
December 1942.2 This was the original pan-Arab programme, on the
realisation of which the original pan-Arabs had always set their
hearts. But this was not yet to be. Instead, after negotiations lasting
from 1943 to 1945, a quite different scheme of Arab unity was set
afoot. In this scheme, there was no amalgamation or federation of
states; it provided, rather, for an alliance of sovereign states in which,
unexpectedly, Egypt figured as the leader.
Egypt had never before manifested any interest in pan-Arabism,
and though we do not yet know all the negotiations which led to the
formation of the Arab League, we do have a few details which throw
light on Egyptian policy and which explain in some measure this
new and sudden development. A pan-Arab policy for Egypt seems to
have been throughout the handiwork of King Faruq and some of his
entourage. The evidence for this is cumulative and convincing.
Faruq's father, King Fu'ad, nursed the ambition of becoming the
Muslim caliph in succession to the dethroned Ottomans, and Faruq
desired to follow his father's policy.s In 1939, on the occasion of a
meeting in Cairo of Arab magaates to discuss Palestine, while the
king, his entourage and his foreign guests were present at a mosque
for the Friday prayers, the palace ofrcials prevented the imam of the
mosque from officiating as usual, and the king hirnself led the con-
gregation in prayer - a traditional prerogative and attribute of the
caliph - and on emerging from the mosque was proclaimed a true
caliph and a pious ruler. In 1946, again, when Isma'il Sidqi was prime
minister, the king, on his own initiative, assembled a meeting of
Arab kings and presidents on his estate at Inshass to which neither
the prime minister nor the foreigrr minister were invited and at which
decisions on pan-Arab policy and on Palestine were taken. 'People
then understood', writes Muhammad Husain Haikal, the eminent
Egyptian statesman who recounts the incident in his Me'moirs,'that
King Faruq's personal policy had for its aim the establishment of his
215
 THE CHATHAM HOUSE VERSION
personal leadership over the Arab states. However, the Ministry
raised no protest and did not wish to make an issue of what happened.'{
In May 1948, also, when the Egyptian troops went into Palestine to
oppose the establishment of the state of Israel, they did so at the
king's insistence and on his orders. Hostilities began on 15 May, and
until rr May, writes Haikal who was at the time president of the
Senate, Nuqrashi, the prime minister, was quite unwilling to inter-
vene in Palestine:
he used to say that he would not commit the Egyptian army to a position
such that the British troops stationed on the Canal would be able to
take them in the rear ... but from one day to the next this opinion
changed. On rz May Nuqrashi asked me to summon Parliament to a
secret session to ask authority for Egyptian troops to enter Palestine.
People learnt a little while later that the minister of defence, General
Muhammad Haidar Pasha, the king's man and his private aide-de-
camp, received an order direct from the king, and he then ordered
battalions of the Egyptian army to cross the {rontiers into Palestine,
without the knowledge of the prime minister, and without waiting for
the decision of Parliament and the decision of the cabinet.s
The same story, with minor variations, emerged from Muhammad
Haidar's examination at the trial in October 1953, by the revolu-
tionary court in Cairo, of Ibrahim Abd al-Hadi who was, in 1948,
chief of the royal cabinet.
Faruq, of course, did not carry out his pan-Arab policies single-
handed. He had coadjutors and instruments and of these the most
prominent were Ali Mahir and Abd al-Rahman Azzam. Ali Mahir
became chief of the royal cabinet soon after Faruq came to the
throne, and acquired great influence as the king's political adviser.
It was during his tenure of office that an active pan-Arab policy was
initiated. In 1939 the British government convened a Round Table
Conference on Palestine to which the Arab states and Egypt were
invited. The Egyptian prime minister, then Muhammad Mahmud
Pasha, decided to lead, himself, the Egyptian delegation to the con-
ference. It was then suddenly announced that Ali Mahir would go
instead, and would take with him Abd al-Rahman Azzam - later to
become secretary-general of the Arab League. 'I do not know',
writes Haikal, who was a member of Muhammad Mahmud's Ministry,
'that the cabinet ever delegated this matter to Ali Mahir Pasha, for
the question never came before the cabinet'.o Haikal then goes on to
say how, when Ali Mahir was away in London, certain notions relat-
zr.6
 PAN-ARABISM AND BRITISH POLICY
ing to the restoration of Islamic principles of government, to the
efficacy of quick dictatorial reforms, and such-like, began to get
increasing publicity, and he adds: 'It is true that these notions were
current before the chief of the royal cabinet's visit to England; but
those who advanced them had done so somewhat shamefacedly.
After his departure, however, this propaganda became more active,
and the palace was not averse to such notions being attributed to it'.?
In August 1939, the king dismissed Muhammad Mahmud's cabinet,
and appointed Ali Mahir prime minister, who included in his cabinet
Azzarn, as minister first of Religious Foundations, and then of Social
Afiairs. As soon as this government was formed, it set up a so-called
'Territorial Army', of which lszam was put in charge. This territorial
arny seems to have been devised to indoctrinate youth and to pre-
pare armed bands which could be used by the government for political
purposes.s In this, Ali Mahir and Azzam were merely following a
fashion made popular by the Nazis and the Fascists, a fashion already
adopted in fraq,9 and in Egypt itself, where Blueshirts and Green-
shirts organised by the Wafd andby the Young Egypt Party made the
streets of Cairo hideous with riots and molestations.
The territorial army attempted, as the eminent orientalist Ettore
Rossi observed at the time, to take up again 'with new regulations
and new aims'lo the traditions of these organisations which had been
dissolved by Muhammad Mahmud Pasha when he took office in
1938. A writer knowledgeable in Muslim Brotherhood affairs, Dr
Heyworth-Dunne, thinks that Azzam took the idea of a territorial
army from Hasan al-Banna, the leader of the Brotherhood,rl and it is
worthy of note that the Brotherhood had its own private army
organised in battalions and regiments, members of which had to
swear to defend the faith and to obey orders unquestionably.lt
Among other members of Ali Mahir's cabinet were Salih Harb and
Mustafa al-shorbatchi, known for anti-British agitations and for
their connections with the Muslim Brotherhood and similar bodies;
as was the chief of staff appointed by Ali Mahir, Aziz Ali al-Misri,
who 'never', says Haikal, 'at any time hid his admiration for
Germany'.ro Ali Mahir's Ministry lasted from August 1939 until
June r94o. Britain was at war with German/, which took the offen-
sive in the spring of r94o and soon scored a brilliant and resounding
victory. Egypt was bound to Britain by an alliance, but under Ali
Mahir's administration and especially in its last days, Egypt was
lukewarm towards her ally, and perhaps worse. The British, comments
2t7
 THE CHATHAM HOUSE VERSION
Haikal, 'were seeing with their own eyes what was taking place in
Egypt, and hearing that Abd al-Rahman Azzarn Bey, the minister
of Social Afiairs, and Salih Harb Pasha, the minister of War, were
talking at every social gathering of German victories and British
defeats . . .'1r The British ambassador demanded the resignation of
Ali Mahir; the king dismissed him, and Ali Mahir delivered a bitter
speech in Parliament denouncing the British for meddling in the
internal afiairs of Egypt.rs
It was these men and their party who, inspiring the king or inspired
by him, invented and propagated pan-Arabism as a policy for Egypt.rc
It is true that Eg1ryt negotiated the formation of the Arab League
when they were under a cloud, the Wafd, in power, and Mustafa
al-Nahhas prime minister. We do not yet know what convinced
al-Nahhas that pan-Arabism was a paying policy, but no doubt the
desire to please the king, to dish his opponents by adopting their
policy, the dislike of Iraq's aggrandisement should Nuri al-Sa'id's
scheme be realised, the approval of the British, and visions of future
grandeur had their part to play. Nahhas remained in power long
enough to sigrr the Protocol of the Arab League preparatory conference
on 7 October 1944. He was dismissed the following day. His successor,
the king's appointee Ahmad Mahir fully took over without question
his predecessor's pan-Arabism and actually appointed Azzam minister
of state for Arab afiairs. It was the king, clearly, who had set his
heart on such a policy: it originated with him or with men who out of
either personal ambition or doctrinaire conviction, conceived the
dream of an authoritarian Muslim state in Egypt embracing gradually
all the Arabs, and perhaps in the fullness of time all the Muslims.
Their inspiration was not strictly the same as that of the original
pan-Arabs; but this is not to say that they contradicted each other.
The ideal of the pan-Arabs was authoritarian also. They desired to
transform the heterogeneous, fissiparous, sceptical populations of the
Fertile Crescent to the likeness of their dream, with all differences
suddenly annihilated, and external unity the emblem of a deeper,
still more fundamental internal unity: one state, one nation, one
creed.
It is said that pan-Islamism and pan-Arabism are contradictory.
Owing to an historical accident the pan-Arabs had acquired the
reputation of being opposed to pan-Islamism. Pan-Islamism was used
by the Ottomans to provide a support for their empire; when the
pan-Arabs rose in rebellion, they necessarily had to emphasise the
ztB
 PAN-ARABISM AND BRITISH POLICY
opposition between pan-Arabism and pan-Islamism. In Egypt, of
course, there was no place and no need for such opposition: the enemy
was Britain, not the Ottoman empire. Islamic sentiment and Islamic
solidarity gave body and passion to the struggle against the foreigner.
A remarkable illustration of this appeared in a prayer written by
Hassan al-Banna, the leader of the Muslim Brothers, for the use of
his followers:
O C'od, Lord of the Creation who giveth assurance to the insecure, who
humbleth the vainglorious, and who layeth low the tyrants, accePt our
prayer and answer our call. Enable us to obtain our right, and give back
to us our freedom and independence. O God, those British usurpers have
occupied our land and made free with our rights; they have oppressed
the country and spread evil in it. O God, turn their intrigues away from
us, weaken their strength and disperse their hosts; annihilate them and
those who have helped them to victory, or have aided them, or have
made peace with them or have befriended them, in a manner worthy of
an all-powerful and majestic One. O God, let their actions rebound on
them, let calamities descend on them, humiliate their kingdom, release
Your land from their power, and let them have no sway over any of the
Believers. Amen.l?

Here we see well exemplified the general character of Islam as at

once a political and a religious creed. The pan-Arabs desired the
unifica.tion of the Arab lands; they desired to expel the foreigner.
These aims are acceptable to and indeed mandatory on Muslims, for
the Arab world is the cradle of Islam and to expel the foreigner from
it is a meritorious action. Such is the agreement in principle between
pan-Islamism and pan-Arabism. It explains how the original pan-
Arabs in the Fertile Crescent, though difierent in outlook and assump-
tions from Faruq and his advisers, could effect some kind of junction
with them, and sigrr after long and difrcult negotiations the Pact of
the Arab League.
At this further stage in the progress of pan-Arabism, the revision-
ism implicit in the settlement of tgzr became explicit' To the Pact of
the League two annexes were attached, one dealing with Palestine,
and the other with 'Arab countries which are not members of the
council of the League'. In both cases the League served notice of its
right to meddle in the affairs of countries outside the jurisdiction of
its members, and of its claim to advise and direct Powers ruling over
or having interests in countries inhabited byArabs, until such Powers
should agree to liquidate their authority and their interests in favour
2t9
 THE CIIATHAM HOUSE VERSION
of pan-Arabism. The Zionists did object to the annex on Palestine,
and pointed out to the mandatory Power that it was a derogation oI
its authority.re The mandatory Power remained serene and unmoved,
not thinking that a day would come when such claims as these would
afiect more than mere Zionists.
Such were the men and such the policies which the British govern-
ment encouraged with its support and blessing. On two public occa-
sions during the second world war, once in a speech at the Mansion
Ifouse in r94r - to which great importance seems to have been
attached, for it was published as a White Paper - and once in answer
to a question in the House of Commons in February 1943, the foreign
secretary declared that it was 'natural and right' that cultural,
economic, and political ties among the Arab countries should be
strengthened: 'many Arab thinkers'ro desired, it seemed, a greater
degree of unity than was then enjoyed by the Arab peoples; 'no such
appeal from our friends should go unanswered'; and the British
government would give 'full support to any scheme that commands
general approval'.
It is well known that in the r93os Germany and Italy - by skilful
propaganda, by judicious disbursements, by the powerful appeal of
their efficiency and success - established themselves as the champions
of, and set the pace for, Arab nationalism. And yet when one comes
to examine what - with their freedom from local and imperial
responsibilities, and their lack of scruple - they were in the end pre-
pared to concede, one is struck with their discretion and circumspec-
tion, compared with the generous and insouciant abandon of British
policy. In the surnmer of rg4o, when Rashid Ali al-Gailani was en-
gaged in the preliminaries of his conspiracy to take power in Iraq and
range it alonpide the Axis, he sent an emissary to Turkey who
presented to von Papen, the German ambassador, a list of demands
which included the confirmation by the Axis of the independence of
all Arab countries, the abolition of the Jewish National Home, and
the recogrrition of Arab unity.eo But neither Germany nor Italy would
be drawn so far, and after months of consideration they made a
declaration in October stating that they desired to see the Arab
countries prosper and occupy among the peoples of the world a
position commensurate with their natural and historical importance,
that they had always followed with interest the Arab struggle for
independence, that in this struggle the Arabs could count on the full
sympathy of the Axis.
220
 PAN.ARABISM AND BRITISH POLICY
Again, in April r94r, when Rashid Ali was in power, and before he
declared war on Britain, he concluded, as the official history of the
Indian army records, a secret treaty whereby in return for recognising
a union - whenever effected - between Irag and Syria the Axis would
receive oil and pipeline concessions, the lease of three ports on the
Syrian coast, and the right to construct naval and military bases
thereon.2l And even when Rashid Ali's movement against the British
was under way in May r94r, and Hitler was persuaded to give some
help, he was not ready to go beyond careful and qualified generalities.
In his directive of z3 May r94r he laid down the policy on which
propaganda was to be based: 'Victory by the Axis Powers will liberate
the lands of the middle east from the British yoke and give them the
right of self-determination [handwritten note: except Syria]. Let
those who love liberty join the anti-British front'.22
Exactly the same demands as were presented to the Germans were
presented - albeit by different persons - to the British government.
And the sympathy of the British government was full indeed, and
active. To the Zionists they turned a deaf ear, and the scheme of
Arab unity, realised by a fortuitous agreement between Faruq and
the original pan-Arabs, they supported and blessed; and from r94r
to t945, they constantly, pertinaciously and in the end successfully
worked to elbow the French out of the Levant.
It is sometimes said that Anglo-French relations in the Levant
during the second world war were so bad because Mr Churchill was
frequently irritated with General de Gaulle, and because Sir Edward
Spears, whose relations with the latter were also tense and difficult,
happened to be head of the British mission (and later British minister)
in the Levant. It is perfectly true that bad personal relations exacer-
bated the situation, that Churchill in particular insisted for a long
time in keeping Spears in the Levant when Harold Macmillan, Duff
Cooper and Lord Moyne repeatedly urged in 1943 and 1944 his recall,
and that the Foreigrr Office complained about the way in which
Spears was interpreting his instructions.zs But we must not give
undue importance to these personal quirks and quarrels. The
tendency of British policy in the Levant was amply clear from the
day when British troops seconded by a Free French contingent in-
vaded the Levant in order - as they said - to deny it to the Germans.
Two days before the invasion, on 6 June r94r, Churchill wrote to de
Gaulle: 'I welcome your decision to promise independence to Syria
and the Lebanon, and as you know, I think it essential that we should
 THE CHATHAM HOUSE VERSION
lend to this promise the full weight of our guarantee. I agree that we
must not in any settlement of the Syrian question endanger the
stability of the middle east. But subject to this, we must do every-
thing possible to meet Arab aspirations and susceptibilities'. Again, a
month later, on 9 July, the prime minister asked the foreign secretary
to include the following points in a proposed communication to
P6tain:
r. England has no interest in Syria except to win the war.
z. Arab independence is a first essential and nothing must conflict with
that.
3. . . . [De Gaullb] will . . . keep alive the fact that, without prejudice to
Arab independence, France will have the dominant privileged position
in Syria among all European nations.
4. . . . We are all committed to Arab independence. . . .81
Thus, before Churchill's relations with de Gaulle seriously deteriorated,
and long before Spears had the chance to misunderstand the import
of British policy, we see the British prime minister insisting that
'Arab aspirations and susceptibilities' must be fully satisfied, and
that 'Arab independence'in the Levant is 'a first essential'.
When the invasion of the Levant was launched, General Catroux
issued on behalf of the Free French a proclamation to the Syrians and
the Lebanese: 'You are', it said, 'henceforth sovereign and inde-
pendent and you can either form two states or unite in one. In either
case, your sovereign and independent status will be guaranteed by a
treaty, which will also define our mutual relations'.,6 The British, it
would seem, wanted a British guarantee of this French promise to be
included in Catroux's proclamation, but de Gaulle firmly opposed
this and the British issued a separate statement.26 In it they de-
clared that 'they support and associate themselves with the assurance
of independence given by General Catroux'. A few months afterwards,
in September, Churchill, speaking in the House of Commons, pro-
fessed to see in this unilateral declaration (from which de Gaulle had
at the time expressly dissociated himself)2? an unqualified pledge and
a solemn obligation which the French would, in due course, be made
fully to discharge.28 And when Alamein,removed the German threat
to the Middle East it became less important to heed Free French
susceptibilities, and the Minister of State in the Middle East could
frankly avow that 'Britain's initial commitment to the Fighting
French, in connection with turning over to them the administration of
Syria and Lebanon, were unfortunately too broad'.t8'
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 PAN-ARABISM AND BRITISH POLICY
Indeed, the drift of British policy was unmistakable. Soon alter
the invasion, the minister of State in the middle east asked Catroux
to allow Spears to be present at talks between the Free French and
the Syrians concerning the grant of independence.20 Though Catroux
refused, it remained the constant aim of the British to interpose
themselves between the French mandatory and the Levant mandated
territories, and thus prove to the Syrians and the Lebanese that they
were beholden to Britain for their independence. In the spring of
rg4z the British began pressing for elections in Syria and the Lebanon.
Spears informed the Lebanese president that his government which
had recognised Lebanese independence 'could not very well concede
that the country should go on living under a regime which was not
truly democratic'.so Both the minister of state in the middle east and
Churchill himself pressed strongly for elections. Casey, the minister
of state, alleged the bizarre reason that Egypt and Iraq - those
paragons of constitutionalism - were demanding elections in the
Levant 'as forming the indispensable criterion' of true independence,
while the prime minister later bluntly told de Gaulle that elections
had to be held in the Levant 'because England had made promises to
the Arabs, to Iraq, to the Wafdists of Egypt'.8l It goes without saying
that there w€rs no demand in the Levant for elections, and that elec-
tions would themselves create turmoil and instability - the very
conditions which the British government professed to rvish to avoid.
When Rommel reached Alamein in the summer oI tg4z they were not
tardy in recognising that such Sames were not then opportune, and
elections were postponed to a more favourable moment.ss
Elections were held a year later, and in the circumstances the local
political factions became the clients either of the British or of the
French. In the Lebanon, in particular, Spears took - and was known
to take - a leading part in the complicated manoeuwes which led to
the appointment of Bshara al-Khuri as president and Riyad al-Sulh
as prime minister. These events clearly indicated that the French
were no longer in unchallenged control of the politics of the Levant,
and the new Lebanese government resolved speedily to exploit this
situation. While Helleu, the French delegate general, was absent
from Beirut, the Lebanese government on 9 November 1943 carried
through the newly-elected Parliament amendments to the Lebanese
constitution which deleted all reference to the mandatory and its
powers. The mandate was of course still in being, and these amend-
ments were introduced and carried through without consulting the
223
 THE CHATHAM HOUSE VERSION
mandatory.88 Helleu considered -it is said with de Gaulle's approvalar
- that this act of defiance merited exemplary punishment. He had the
government arrested and interned. But the British, alleging that this
action was a threat to military security, compelled the Free French,
by means of an ultimatum, to release and reinstate the Lebanese
government. The amendments remained on the statute book, and it
became clear to everyone that the satisfaction of 'Arab aspirations
and susceptibilities' was indeed the prime object of British policy.
The lesson was driven home by the Syrian events of May-June
1945. At the beginning of May the French were getting ready to
submit proposals for treaties with the Lebanon and Syria which would
formally end the mandate and secure for the French that privileged
position to which Churchill, as he repeatedly declared, considered
them entitled. The approach of these negotiations shortly following
the creation of the Arab League in the previous March and coinciding
with the end of the war in Europe created tension and effervescence
in Syria which the Syn"n government expertly encouraged and fed.
The Syrian government no doubt knew that it could count on
British - and American - support. A month before the crisis broke,
for instance, Camille Chamoun, Lebanon minister in London, then
on a visit to Beirut, noted in his diary on z9 April that Sir Edward
Grigg, minister resident in the middle east, was expressing concern
at 'French provocations'which threatened to produce a conflagra-
tion and that the United States minister, Wadsworth, was afraid that
the French might be sending troops and that his advice in this case
was for the Syrians and Lebanese to refuse all negotiation.s6 In the
latter half of May this agitation began to increase. The pretext was
the arrival at Beirut aboard two French cruisers of three battalions,
two of which were replacements. This was held to mean that the
French were preparing to make Syria and the Lebanon negotiate
under duress. The net increase in French troops was one battalion,
and it is absurd to imagine that by itself it would have sufficed to
coerce the Levant. It is more probable that the arrival of these troops
was taken as a convenient pretext to step up the agitation.sc The
British government, while admitting that the net increase in troops
was 'very small', yet publicly warned the French that their arrival
might cause 'regrettable reactions'.8? Tke Times of Monday, z8 May
reported a statement issued by the Foreign Office on the previous
weekend which alleged a 'serious situatiolr' in the Levant and re-
gretted that 'the improved atmosphere should have been disturbed
224
 PAN-ARABISM AND BRITISH POLICY
by the dispatch of certain French reinforcements'. A 'serious situa-
tion', whether provoked or not by this statement, thereupon super-
vened. !-rench troops were attacked on z8 and zg May in Damascus,
Hama, Aleppo, Deir-az-Zor and elsewhere. They retaliated and in
Damascus bombarded the parliament and other buildings fromwhich
they alleged they were being fired uPon.38 Promptly, on 3r May, a
British ultimatum ordered the French troops to cease fire' They were
confined to their barracks which were taken under the protection of
British troops.se This British action finally ruined the French position
in the Levant.
What was anticipated Irom such a policy? 'It is all right', declared
Lord Strabolgi, in a debate in the House of Lords on the events of
November 1943, 'for General Spears to be carried shoulder high by the
mob in Beirut, and for us to have messages of congratulation from
middle east potentates; but I am thinking of the future'.ao Again,
when Duff Ccloper was urging Spears's recall from the Levant he
wrote to Churchill: 'We have surely enough native problems of our
own to face without stirring up native problems for others'.al What
then of the future? We may not doubt that British diplomats and
statesmen debated among themselves what policy was most likely to
safeguard the substantial British interests in the middle east, and
that this tender attention to'Arab aspirations and susceptibilities'
they felt to be their best protection. This policy also had another
advantage. It presented no difficulty, either in theory or in practice'
It assumed that the triumph of pan-Arabism was inevitable and,
seeking an alliance with the inevitable, it hoped to reap the benefits
of such a miglrty connection. But unfortunately it was a bogus policy,
since the inevitable is the ally of nobody' Having helped the triumph
of the inevitable in the Levant, what stance should the British adopt
when it rose to confront themin Iraq, and Palestine and Egypt? What
rejoinder was possible to Duff Cooper's observation?
Unluckily, the starkness oI this prospect seems to have been hidden
by beguiling theories and false hopes. Of these theories there are many
variants, offrcial and unoffrcial. The Arab League, as Lord Altrincham
(who was minister of state in the middle east from the assassination
of Lord Moyne until rg45), said in an address at the Sorbonne in
May tg47,was encouraged by Britain; but he claimed that it was an
autonomous Power created by the Arabs themselves and represented
their unanimous resolve to act independently in world affairs. Theirs
was an ancient civilisation now being reborn, and it was possible to
225
 THE CHATHAM HOUSE VERSION
capture their friendship and good will by helping them in this enter-
prise. Lord Altrincham buttressed his hopes by a curious argument.
If the Palestine White Paper of 1939, he explained, had not been
issued, the whole Arab world would have been against the Allies in
the most dangerous years of the war, from r94o to t94z; hence the
way to safeguard western interests in general and British interests in
particular was to act with the Arabs, assembled in their new League.as
This was to confuse the wishes and anticipations of those who invented
the White Paper of 1939 with what, in fact, happened. For it was
precisely in these years between r94o and tg4z that the Arab world
manifested great hostility to Britain. What saved the British position
in the middle east was not the White Paper, but military power,
Churchill's daring, and Hitler's obsession with the conquest of Russia.
Such arguments deserve mention to show the foundations on which
such grandiose hopes were built. Lord Altrincham's views are worthy
of notice because they provide evidence of the terms in which some-
one who had held high office connected with the middle east was
prepared to think of policy.
Lord Altrincham was of course not the only one to see things in this
light. Miss Stark, who served during the war as an ofrcial in the
British embassy in Baghdad, and elsewhere in the middle east, firmly
believed that pan-Arabism was beneficial both to the Arabs and to the
British. 'Their pan-Arabism', she declared in a lecture of February
ry39 at Chatham House, 'we may think of as Utopia, and it may be
so: but a strong and united Arabia would be to our interest; its divi-
sions are a source of danger, and an occasion for intrigue; and even
if the dream of federation is a dream of the future, and a misty one
at that, it is well for us to do all we can to further it'. And after war
broke out she was writing to a correspondent: 'For years I have been
unable to see why our government should not take every public
opportunity to give a blessing to the pan-Arab cry. What are they
frightened of?'{8 Towards the end of the war, at the beginning of
1945, Sir Douglas Newbold, chief secretary in the Sudan was writing:
'. . . Mustn't upset de Gaulle . . . Mustn't upset the Yanks or Weiz-
mann . . . and then we hope to keep Arab friendship and loyalty.
Cornwallis, MacMichael, Spears, and Killearn have all told H.M.G.
of the danger of these courses, in no uncertain terms, and persuaded
Casey and Moyne of it'. 'Now', he exclaims in a frenzy of impatience,
'now is the time for the H.M.G. to come out with a middle east policy
and win over ffind.ia, pashas, shaikhs andfel,l,ahin from Baghdad to
226
 PAN-ARABISM AND BRITISII POLICY
Tripoli and Khartoum.. . . I've met Senussi leaders, Palestine
Arabs, Beirut graduates - all are waiting for Eden to implement his
nebulous blessing of tbe Arab Commonwealth'." This millennial
fervour is echoed by Spears back in the House of Commons from the
Levant: 'The movement towards Arab unity', he affirmed in epic
language when the Arab League was inaugurated in March 1945,
'is like a great natural force, the flow of a river to the sea. It can be
slowed down, diverted or impeded, but', he observed seer-like, 'in
course of time it will reach its objective'.{6 And on the same occasion,
The Times newspaper wrote with quiet satisfaction: 'To no other
Power will the promise offered by these developments be more
welcome than to Britain, with her long-standing record of friendship
with these countries'.{6
But to appreciate the full scope and ramifications of this theory, we
must go to unofficial sources, to the writings of some British academics
on middle eastern affairs, among which those of Professor Gibb are
noteworthy. The theory, we find, is concerned, in the first place, with
a presumed Muslim ethic, and in the second with a presumed dif-
ference within the ranks of Arab nationalists. As to the first, Gibb
explains that though Muslim society has sufiered from violence and
lawlessness, and from corruptions introduced by non-Arabs,a7 its
true principles, which had been so particularly safeguarded by Arab
Muslim orthodoxy, could still be applied in the Arab Muslim east'
'Islam', for instance, 'still maintained the balance between the
exaggerated opposites of bourgeois capitalism and communism', and
'while hostile to banking capital and unrestricted exchange it sanc-
tioned private property and commercial capital'; Islam 'had not suc-
cumbed to the obsession with the economic side of life which was
characteristic of almost all our western societies'. Gibb asserted that
.it is by these and similar ideas that the thought of the Arab national-
ists is being more and more strongly influenced'.r8 After the Arab
League was formed, Gibb explained that the 'duty laid upon the
Arab leaders is, in its essence, closely parallel to that laid upon the
leaders of the United Nations'.ro
As to the Arab nationalists, Gibb said that there were 'two kinds
of Arab nationalists: those whom I call by that name, and those
whom I call pan-Arabs'. The pan-Arabs were intolerant bigots,
while the nationalists, though certainly respectful of Islam, desired
also to adopt western ideas in order to combat feudalism and inter-
necine rivalries, and to collaborate with the non-Muslim minorities.
227
 THE CIIATHAM HOUSE VERSION
'Such there are in all the regions of the Arab east - Egypt, palestine,
Syria, Iraq, even', he asserted, 'Arabia - and it is upon them that the
hopes of a revived, progressive, respected and self-respecting Arab
nationhood depend'. Let, therefore, said Gibb- advocating some such
plan as that being then pushed by Nuri al-Sa'id in British official
quarters - let a federation of the Arab lands in Asia be constructed,
and the sound Arab nationalists would be able to get on with the
work which centuries of Sassanid comrption and Ottoman mal-
practice had left undone: 'it is a rational, reasonable, eminently
practical objectivg'. oo
Such were the doctrinal foundations on which a policy was based to
encourage Faruq, Azzam, and the triumphant doctrinaires of the
Fertile Crescent to come together and emulate the ideals of the United
Nations. Many people must have felt misgivings as to how such an
adventure would end, but it is safe to say that nobody of position or
standing, whether British or Arab, was ready to question in public
the assumptions and execution of this policy as Haikal coolly and
soberly questioned it. He is reported to have declared at the time of
the first formal conference on Arab unity in 1944:
It is doubtful whether the union will be a political union; it is doubtful
whether, in case one of the Arab states is attacked, the others will hurry
to its aid, It is also doubtful if an effective cultural union, or a union of
some other kind, could take place, because the history, the legal codes,
agriculture, and industry are necessarily difierent in the difierent Arab
states.5l
Events have proved him amply right, and have shown the Arab
League to be a system based on conflicting ambitions and cemented
with bitter mutual suspicions. The Pact of the League proved to be a
device designed not so much to bring about Arab unity, as to keep
the so-called Arab states at arms length from one another. But
British policy-makers came to see middle eastern questions such as
the Palestine problem, or Anglo-Egyptian relations, or Anglo-Iraqi
relations, as so many inseparable parts of one large and fundamental
issue, that of 'Anglo-Arab' relations. This view of middle eastern
policy is exemplified by an official report which Miss Stark and one
of her colleagues wrote in r94r: 'Our aim', they said, .should be to
make nationalism friendly', and went on: 'We feel that it cannot be
too clearly stated nor too often repeated that there is only one
problem at the root of all our relations with the Arab world: this is
the absence of any clear statement from H.M.G. of their intentions
zz8
 PAN-ARABISIII AND BRITISH POLICY
towards Arab nationalism, the future of Syria and Arab confedera'
tion, and the still unresolved problem of Palestine'.5z Seen in this
way, 'relations with the Arab world'were, however, amenable to no
possible negotiation or settlement. The 'Arab world' or 'Arab
nationalism' are not a known political entity, with tangible or defin-
able interests. They are slogans which various states in the middle
east, usually at loggerheads with one another, have adopted in order
to advance their own interests. As for British interests, they were lost
in the marshy wastes of this pan-Arab ideology, entangled and
smotheredin pan-Arab intrigues andcombinations. But it is the British
themselves who cheerfully led the way into these wastes; it was they
who eagerly sought these entanglements.ss
The 'rational, reasonable, eminently practical objective' has failed
of its attainment, and the policy which sought to promote it is now
dust and ashes. It disintegrated on the battlefields of Palestine in
1948, three years after the foundation of the League. 'Hodie mihi',
Bidault warned Britain when the French Consultative Assembly
debated the Syrian affair in June 1945, 'cras tibi'. It proved a swift
reckoning. Policies are meant to succeed; if they fail, then they are
bad policies; unless, that is, new and powerful circumstances which
could not have been foreseen impinge to falsify calculations and
upset expectations. But between 1945, or indeed 1943, or 1939, and
1948 no new elements, no alien factors were introduced into the
middle eastern situation. The Zionists were there, the pan-Arabs
were there, Faruq and his men were there, and their antecedents,
capacities, ambitions were for all to see. To argue that the policy
failed because the Zionists were not docile enough, the Arabs united
enough or wise enough, is to argue either from ignorance or fanciful-
ness or sentimentality. But it does remain a curious fact that some
British policy-makers - perhaps even Mr Eden himself - entertained
the belief that the creation of the Arab League would actually facili-
tate a peaceful solution in Palestine. In a work published in t944
Lord Altrincham argued that such a solution could not be found
within the confines of Palestine alone, and that hope for a settlement
lay in Arab unity: 'The Arab nations', he said, 'are . . . moving
tentatively towards closer association, and within some kind of
confederation, however loose, there should be scope for a solution
of the local problems of Syria and Palestine alike'.sa Far from the
Arab League facilitating a peaceful settlement it made - as could
have been reasonably foreseen - a violent outcome of the Palestine
229
 THE CHATHAM HOUSE VERSION
dispute quite inevitable, with fatal consequences to public morality,
settled society, and British interests in the middle east. Any kind of
compromise solution enforced or facilitated by the mandatory
became quite impossible, because the doctrine in terms of which the
Arab League claimed to operate spurned and abhorred the idea of
compromise, and because each of the principal states constituting
the League looked on a military victory in Palestine as a quick and
easy means of securing the leadership of the Arab world.
The events which preceded - and finally precipitated - the Palestine
war of 1948 make this clear. As has been seen, Egypt decided to send
an army to Palestine only at the last minute, and she decided to do
so only when it became clear that if she were to stand aloof her
primacy in the Arab League would be threatened. When, shortly
after the beginning of the hostilities, the Palestine mediator, Count
Bernadotte, met the Egyptian prime minister, Nuqrashi told him
that Egypt had had, to start with, no intention of sending troops to
Palestine but that she changed her mind 'when 8th May [1948] came
and it became apparent that no settlement would be worked out'.56
What settlement did Nuqrashi mean? It was a settlement, no doubt,
which would rule out the partition of Palestine, thus preventing not
only the establishment of a Zionist state, but also - which was much
more important - the aggrandisement of Trans-Jordan which parti-
tion would inevitably bring about. Ever since partition was decided
it was clear that the Amir Abdullah was determined to turn it, one
way or another, to his profit. On the morrow of the vote at the
United Nations, which took place on z9 November rg47, Abdullah
proposed to the Arab League states that they should finance a Trans-
Jordanian conquest of Palestine which he was ready to undertake.
Trans-Jordan was not a member of the United Nations and could,
therefore, defy with impunity the partition scheme.60 The proposal
was rejected, for obvious reasons, and Egypt and the others decided
to put their trust in the Palestinian Arabs, organised and directed by
Hajj Amin al-Husaini and in the so-called Army of Deliverance to be
recruited and financed by them. Also, just before partition was
resolved upon Abdullah had indicated to Mrs Golda Meyerson of
the Jewish Agency that, in case of partition, he wanted to annex the
area of Palestine awarded to the Arabs.67
In the months which followed, Abdullah actively pursued this
complex and ambitious policy. He maintained his contacts with the
Jewish Agency but now asked that they should better the United
230
 PAN.ARABISM AND BRITISH POLICY
Nations award to the Arabs, by conceding additional territories and
thus enable him to take the credit for having obtained a better deal
for the Palestinians than the United Nations. ffe seems also to have
put pressure on the Iraqis to send a contingent in support of the
Arab Legion. Internal afiairs in Iraq were then quite disturbed and
the Iraqi cabinet did not seem particularly eager to respond. A
member of this cabinet has subsequently recounted that the students
of the Law College in Baghdad proclaimed a fast to compel the
government to send troops to Palestine and that the Trans-Jordanian
ambassador came to the college and invited them to continue with it.
Abdullah himself sent telegrams to his nephew the regent and Sadr
the prime minister insisting on the dispatch of Iraqi troops.68
The Iraqi government was weak, divided and manifestly unable to
control events in the country. Caught by its own rhetoric, and unable
to resist pressure, it sent in May a force to Trans-Jordan. Abdullah
therefore felt strong enough to threaten the Zionists with war unless
they agreed to his demands. At an interview with Mrs Meyerson
shortly before r5 May he demanded that Palestine should remain
undivided - i.e. that there should be no Zionist state - and that, at
the end of one year, it should amalgamate with Jordan. Two days
before the outbreak of war he again repeated his demand.60 By the
beginning of May the Palestinians and the Army of Deliverance had
decisively shown that they were no match for the Zionists and
Abdullah seemed favourably placed to act as the saviour of Palestine,
checkmating his Arab rivals and perhaps wresting from the Zionists
more than the United Nations had awarded to the Arabs. When it
became clear that no development at the United Nations could
possibly undo partition and thus stop Abdullah, Eglryt had to inter-
vene, thus suddenly reversing a policy which Nuqrashi had con-
sistently maintained ever since the Arab League meeting at Aley in
October when he categorically refused to consider Egyptian military
intervention in Palestine.oo
What was Britain's attitude to all these developments? The
question is natural since Britain was still the paramount power in the
middle east, and since Trans-Jordan in particular was its client unable
in the final analysis to disregard British wishes and suggestions. What
was Bevin's attitude to Abdullah's adventurous policy? In his
memoirs, Glubb tells us that towards the end of February 1948, an
interview - at which he was present - took place in London between
Bevin and the Trans-Jordan prime minister. Tawfiq abdul-Huda
23r
 THE CHATHAM HOUSE VERSION
informed Bevin that after the British withdrawal from Palestine,
Trans-Jordan proposed to occupy the areas allotted to the Arabs -
bar Galilee and Gaza. Bevin is reported to have said:'It seems the
obvious thing to do, but do not go and invade the areas allotted to
the Jews'.or On the face of it this conversation is quite peculiar. Ever
since partition had been announced the constant refrain of the British
government had been that since the Arabs disapproved of such a
scheme, it would do nothing to further it. But in the conversation
which Glubb reports, we see the foreign secretary privately approving
a solution which in public the British government dismissed with
heavy disapproval. Again, the informal partition which the Trans-
Jordan Prime Minister proposed could not but involve risks of dis-
order and fighting. And on Glubb's account, Bevin seems to have
preferred it to an orderly and internationally supervised operation.
And further, what was to happen to Galilee and Gaza? What finally
was to happen to Jerusalem? Jerusalem the United Nations had voted
to be internationally administered, and the British government had
obstinately refused to help in any way to set up an international
administration. At the British withdrawal, then, Jerusalem would
become ares null,ius over which Abdullah and the Zionists were likely
to fight, and the silence of Bevin and abul-Huda on the question of
Jerusalem becomes therefore an eloquent silence. For all its mild and
homely tones, this conversation on that February day, in Downing
Street, is profoundly disquieting. It shows the Foreigrr Secretary to
be, at best, dangerously ambiguous or perhaps muddled and, at worst,
bent on a war in Palestine. The war at which this conversation
perhaps hinted, and which it certainly entailed was, to be sure, a
war between Abdullah and the Zionists; but if Abdullah was to fight
then Eg'1ryt would also join - the machine in,fernal,e of the Arab League
made this quite certain.
A sidelight on British policy is possibly provided by a letter from
Fadil al-Jamali, who was Iraqi foreign minister at the time of the
abortive Anglo-Iraqi Portsmouth Treaty of 1948. This letter, dated
zo September ry57, Jamali wrote in answer to a query by Sayyid
Abd al-Razzaq al-Hasani, author of a well-known history of Iraqi
cabinets, who published it in the third edition of volume seven of his
book which appeared in 1968. Hasani had asked whether the Ports-
mouth Treaty had contained a secret appendix relating to Palestine.
Jamali wrote of a meeting which took place in his room at Claridge's
Hotel in London after the Treaty was signed, on r5 January 1948.
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 PAN-ARABISM AND BRITISH POLICY
At this meeting there were present Bevin and his advisers, and on the
Iraqi side Jamali himself, Salih Jabr the prime minister and Nuri
al-Sa'id. Jamali declares that agreement was reached on the following
points:
r. Speeding-up the supply of weapons and ammunition ordered
from the British Government.
z. Supplying the Iraqi police with automatic weaPons sufrcient for
fifty thousand policemen. The purpose was to arm the Pales-
tinian fighters to enable them to participate in the liberation of
Palestine.
3. It was also agreed that the Iraqi forces would enter every area
evacuated by the British troops so that this would embrace the
whole of Palestine, in co-operation with the Palestinian fighters
so that a Jewish state would not be formed.
Jamali adds: 'This is what was agreed, and what was completely laid
aside when the Portsmouth Treaty was turned down.' Another
Iraqi ex-minister discusses these Anglo-Iraqi negotiations in his
memoirs. The Iraqi negotiators, writes Khalil Kanna, found in Bevin a
readiness to co-operate on the Palestine issue and reached an agreement
with him to form two Iraqi divisions to be stationed at the Trans-
Jordan frontiers ready to march on Palestine after the British
withdrawal. Kanna, however, though very close to Nuri al-Sa'id,
did not take part in these negotiations himself, and may have been
anxious to vindicate in retrospect the Portsmouth Treaty policy by
arguing that it led to tangible advantages in the Palestine question,
which were lost when the Iraqis repudiated the Treaty.cr
What possible advantage could Britain derive from warin Palestine?
For even if the Zionists were defeated and humbled, the'Arabs' could
not win. It was not 'Arabs' who were fighting in Palestine, but the
Arab Legion, the instrument of Trans-Jordan, and the Egyptian
Army. Egypt could win, and Trans-Jordan would ioin the Zionists in
their discomfiture; or Trans-Jordan could win, and then Eg:1ryt would
be humiliated with the Zionists. In either case, the British had to
choose between befriending Egypt or befriending Trans-Jordan. The
Palestine war brought to the fore and made acute an issue which
Eden's Arab Leagrre policy disastrously slurred oVer and disguised.
After the mad outbreak ('arbada\ over the Palestine war (as Azzam
felicitously described it in retrospe"lca), the issue became inescapable
and had somehow to be resolved. It fell to Eden to resolve it. Bv
negotiating the Baghdad Pact in rg55 he made a necessary choice.
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 THE CHATHAM HOUSE VERSION
In befriending Iraq, he alienated Egypt; but to govern is to choose.
It could have been argued, between 1955 and 1958, that the makers
of the Baghdad Pact had at last abandoned the policy which led to
the encouragement of the Arab League. If so, it was a return to
common sense and prudent calculation. Friends made friendly by the
persuasion of tangible interests, by a reckoning of risk and advantage,
by a provident quest for military and economic security: such is a
conceivable objective of foreign policy. But, in fact, it did not prove
possible for the British to extricate themselves from the quicksands
of a doctrinaire adventure.
Years of official pan-Arabism meant that the middle eastern
political debate was securely confined within the pan-Arab groove.
When the Baghdad Pact was made, its Arab enemies denounced it
as a betrayal of the pan-Arab cause. To reply to them when they
became most vociferous at the time of the Suez operation, Nuri al-
Sa'id made a long broadcast in December 1956. The burden of his
argument was that Communism, Zionism, and France were allies
against whom Iraq has always fought and wi[ always fight. Iraq, he
said, was the only true servant of pan-Arabism. How can those, he
asked, who maintain the frontiers created by imperialism (here
alluding to Syria, and the well-known pan-Arab argument that all
frontiers in the Fertile Crescent were artificial and arbitrary) be
called patriots and nationalists? It may be that the Iraqi minister
was trying to pay back his enemies in their own coin, but it is as
probable that he was sincere in what he said: 'The call to Arab
nationalism', he declared at the end of his broadcast, 'is not something
new and accidental with me. It is my very being, of which I am proud,
which I seek to protect and to tend, whether I am in power or not.
If such has been my way in my youth, and in my middle age, it is not
strange that I should remain the same in my old age'.o. This is quite
true, and to the extent that it was true and represented the terms in
which, whether from habit, inclination, or necessity, the rulers of
Iraq talked of politics, disengagement from the quicksand proved
impossible.
Between 1955 and 1958, Britain found herself being involved by
her Baghdad Pact ally in those pan-Arab complications which were
the d,amnosa haereilitas of earlier British policy. Iraq drawing support
from Britain, and Egypt from the Soviets confronted one another
in a gladiatorial posture over the middle east. The members of the
Baghdad Pact had willy-nilly to support Iraqi intrigues in Syria and
234
 PAN.ARABISM AND BRITISH POLICY
the Lebanoncs - intrigues stemming from Iraq's pan-Arab ambitions
- lest the success of Eglrytian counter-intrigues - likewise stemming
from Eglpt's pan-fuab ambitions - should give the Soviets - against
whom the Pact was directed - a firmer footing in the middle east.
The couf d'ltat ol. 14 July 1958 itself indirectly brought about by
Iraqi ambitions in Syria, in putting an end to the monarchical regime
in Baghdad at last ended, for good or evil, the British involvement
with pan-Arabism.

235
9

The Kingdom of Iraq:

a Retrospect
I give thee a king in Mine anger
And take hirn away in My wrath
Hosea, xttt, tt

The events which took place in Baghdad on 14 July 1958 were

received by the world with a shock of horror and incredulity. For
years respectable journalists, enthusiastic statesmen and even sedate
academics, exhausting the vocabulary of praise and admiration, had
been expatiating on the stability of Iraq, on the wisdom and honesty
of its rulers, and their provident management of the immense wealth
which oil royalties had brought to the country. Here and there, it is
true, voices were raised to protest that Iraq under Nuri al-Sa'id was
a police state, a hot-bed of corrupt and greedy reactionaries who were
oppressing the people and betraying its national aspirations; but such
rumours were dismissed - and perhaps rightly - as the expression of
Egyptian malevolence, or as the scandal-mongering of ignorant left-
wing journalists. To foresee such a revolution would have required, of
course, divinatory powers; is it not significant, nevertheless, that
public information on Iraq was so poor, that intimations of coming
trouble should emanate only from sources which it was natural and
reasonable to discount and discredit? The unexpected character of
the revolution was not, however, the only reason for the shock it
produced. There was also the murder at dawn of the royal family, of
the king, an innocent and harmless young man of twenty-four, of his
aged grandmother, of his devoted aunt, and other inmates of the
royal palace.l It was not merely the indiscriminate killing which
aroused horror, but also that a king and his family were the victims.
For an obscure and tenacious instinct has always moved men to
46
 THE KINGDOM OF IRAQ: A RETROSPECT
consider regicide peculiarly heinous and impious: a king is the head
of the state, and a state, however mean and perverted, has still some-
thing of nobility; it is an invention peculiar to man, a dyke against
bestiality, and a storehouse of devotion and loyalty; to lay violent
hands on it is to weaken the social fabric, to increase human in-
security, and to let loose evil and destructive passions.
But, everything considered, was there not reason to expect some
such upheaval, and is there not reason, even now, to expect further,
perhaps even more violent commotions? For brief as it is, the record
of the kingdom of Iraq is full of bloodshed, treason and rapine, and
however pitiful its end, we may now say that this was implicit in its
beginning. kt us briefly examine this record. In 1933, the kingdom
inaugurated its full independence by a massacre of the Assyrians
carried out by the Iraqi army. At the beginning of 1935 the threat of
tribal unrest in the Euphrates area forced the ministry of Ali Jawdat
al-Ayyubi to resign. He was followed in March by Jamil al-Midfa'i,
who after a fortnight in power also resigned under the threat of a
tribal uprising. He, in turn, was followed by Yasin al-Hashimi whose
Ministry lasted until October 1936. Under this ministry the tribes of
Rumaitha in the Diwaniyya province rose in rebellion in May 1935;
martial law was declared, and the army, helped by aerial and ground
bombing, put down the revolt. At the same time the tribes of Suq-al-
Shuyrkh and Nasiryya in the Muntafiq province also rose and had to
be put down by the army. In the summer of the same year the Kurdish
tribes of Barzan showed signs of rebellion and the government had
again to proclaim martial law and to send an arrny contingent which
established order for a time. In the following October the government
sent out a punitive expedition against the Yazidis of Jabal Sinjar who
were objecting to army conscription, put down their opposition and
hanged two Christian notables from Mosul as well as seven muhhtars
of Yazidi villages.r The attempt to apply military conscription to the
tribes resulted in other outbreaks, of which the most serious was at
Rumaitha in April 1936, which the government, armed as it was with
an air force, put down with the utmost severity: the killing, it seems,
was indiscriminate, and old men, women and children were the
victims of machine-gunning and bombing from the air. The Agra'
tribes in Diwani5rya also objected to military conscription and revolted
in June of the same year; their revolt was put down and the govern-
ment hanged and imprisoned their chiefs. At the end of October 1936
General Bakr Sidqi, who had directed the operations against the
237
 THE CHATHAM HOUSE VERSION
Assyrians and the Euphrates tribes, together with a fellow general
Abd al-Latif Nuri, whom financial embarrassments induced to enter
the conspiracy,s carried out a coup d,'Ctat agunst Yasin al-Hashimi,
banished him, together with Rashid Ali al-Gailani, and Nuri al-Sa'id,
from Iraq, having previously ordered the murder of the latter's
brother-in-law, Ja'far al-'Askari. Bakr put in power a civilian con-
federate, Hikmat Sulaiman. Under this Ministry in May 1937 the
tribes of Samawa in Diwaniyya also rose in revolt, as a result of
agrarian unrest and their objections to military conscription. Their
revolt was put down with the help of indiscriminate aerial bombing.
In August an arrny corporal, instigated by his officer, shot and killed
Bakr Sidqi; thereupon the commander of the Mosul garrison,
Muhammad Amin al-'Umari, threatened rebellion unless Hikmat
resigned office. Hikmat resigned and Jamil al Midfa'i negotiated with
the officers and obtained the succession.r His Ministry lasted until
December 1938 when five colonels in Baghdad, in a conspiracy with
Nuri al-Sa'id and Taha al-Hashimi, compelled him to vacate office.
Nuri became prime minister and Taha minister of Defence. Nuri
remained in ofrce until February r94o when dissension broke out
between his military supporters, who were divided into two factions.
One faction attempted a coup d.'Ctat agunst Nuri, and the other a
second coup d.'Ctat in favour of Nuri; they were victorious and Nuri
remained in ofrce until the end of March when the intrigues of Rashid
AIi al-Gailani, then chief of the royal cabinet, compelled him to leave
office. Nuri's supporters in the army now bestowed their protection
on Rashid, who after the fall of France felt confident enough to
chdlenge the British government by following a pro-German policy.
Abd al-Ilah, the regent, who took the place of King Ghazi, killed in a
motor accident in 1939, attempted to dismiss Rashid in January
r94r. He was threatened by the colonels and fled to Diwaniyya.
Rashid Ali, faced with the scandal, resigaed and was succeeded by
Taha al-Hashimi on r February. Exactly two months later, the
colonels extorted Taha's resignation, the regent fled the country, and
Rashid Ali took power again. He deposed the regent and declared
war on Great Britain, but his movement collapsed at the end of May
and he fled to Germany, where he spent the rest of the war. The
British occupation of Iraq which followed Rashid Ali's movement
froze the political situation, but no sooner was the war finished than
the Kurdish tribes of Barzan rose in revolt; it took two months,
from August till October 1945, to put down the rebellion; thereafter
48
 THE KINGDOM OF IRA9: A RETROSPECT
the Kurdish areiui were in a constant state of effervescence, under
continuous and vigilant military control, the civilian administration
being frequently in the hands of the local military commander. At
the beginning of 1948 the prime minister, Salih Jabr, negotiated the
Portsmouth treaty with Great Britain; his enemies and rivals in
Baghdad succeeded in rousing the mob which frightened the regent
into disowning the prime minister. A few months later Iraq joined
the other states of the Arab League in the invasion of Palestine: the
enterprise proved ill-judged, futile and disastrous. After the establish-
ment of the state of Israel the government succeeded, during r95o-r,
in reducing the prosperous Jewish community, by means of intimida-
tion, persecution and confiscatory legislation, into a horde of refugees.
ln rg5z riots broke out in Baghdad which compelled the government
to substitute direct for indirect suffrage. And in the summer of 1958
took place the fourteenth of July of Abd al-Karim pasim.
This bare record of twenty-six years of independent government is
a grim history; and when we add that in the thirty-seven years which
lie between the accession in rgzr of Faisal I to the throne of Iraq
and the murder in 1958 of his grandson Faisal II, fifty-seven ministries
took office, we must conclude that such a condition argues a wretched
political architecture and constitutional jerry-building of the flimsiest
and most dangerous kind. The kingdom of Iraq was, in its origin, an
emanation of British policy. It was the ingenuity, persistence and
devotion of British officials which set up this structure which has
proved so shaky and so impermanent. To understand why it crashed
it is therefore necessary to begin by examining the materials they
chose and the methods they employed. The kingdom which British
policy put together in tgzt was built round one man, Faisal, the third
son of the sharif of Mecca who, at the end of the first world war, had
been installed king in Damascus and from which he was evicted in
the surnmer of. tgzo, by the French, who had lost patience with his
intrigue and vacillation, with the anarchy which his rule promoted,
and the inimical agitations of his supporters. No sooner was Faisal
out of Syria than his friends in Great Britain, of whom the best known
was Colonel Lawrence, attempted to instal him as king of Iraq.
Faisal's character was not unknown to his partisansi in Seven Pillars
of Wisd,om Colonel Lawrence called him a weak man, while in the
manuscript of his book he had added that he was an empty one as
well. When, in August rgzo, the British ministers asked the French
government to consent to Faisal's installation in Iraq, the latter
239
 THE CHATHAITI HOUSE VERSION
made strenuous objections and Berthelot, the foreign minister,
informed Lloyd George that in his view Faisal was'a weak man, of
very feeble character, of considerable prestige, but dangerous'.
Lloyd George agreed with this estimate but said that Faisal was
wanted by 'the sheikhs' of Mesopotamia, and that if the French
consented to his candidature the British government would be able
to release seventy thousand troops who were engaged in policing the
country.s Curzon, the foreign secretary, attempted a stouter defence
of Faisal's character and of British policy, but privately confessed his
doubts and hesitations. 'We hinted', he wrote to Sir Herbert Samuel
on 15 August r92o, 'at Feisal for Mesopotamia, but the French
pronounced him a double-dyed traitor, and almost screamed with
rage. The idea must probably be postponed at least for the moment'
Nor am I quite sure it is sound, Ior he was clearly weak and was a
puppet at Damascus'.6 The doubt was not misplaced, for Faisal in
Baghdad soon showed the same unreliable character and used the
same devious methods which led the impatient French to rid them-
selves of his rule in Damascus. The same refrain is heard during the
years of his rule in Baghdad. 'King Faisal', says Sir Henry Dobbs the
High Commissioner to the American Consul in t923,'is not a master-
ful leader' and he therefore expects trouble after the conclusion of the
Turkish Treaty.? In the judgment of the chairman of the League of
Nations Mosul Commission Faisal was 'a poor creature';t 'I wish'
writes Dobbs in r9z9 to an official at the Colonial Office, 'King Faisal
were not so chameleon-like, He is a very exhausting person to live
with and I think his prime ministers all feel the same'.o Even Miss
Bell, his warm partisan, carne to confess, less than a year after his
enthronement, that the king was not dependable: 'Mr Cornwallis and
I', she wrote in a letter of 4 June rg22,'had a long talk. I told him I
was very unhappy over the king's indecisive attitude, his refusal to
contradict the statements oI the extremist PaPers and the backing he
was giving to the most ignoble extremists. He agreed and said he had
fought with him and was feeling bitterly disillusioned'.lo 'Oh the
king, the king!' she exclaims two days later, 'If only he would be
more firm!' and a month later she is bitter about still more evidence
of his'double-dealing'i she confronts him with it and'after two hours'
discussion, he embraced me with great fervency and we parted on
rather unsatisfactory terms of close sentimental union and political
divergence!' On 3r August she is driven to write of Faisal that he is
vain and feeble and timid and that his fine ideals can never come to
240
 THE KINGDOM OF IRAQ: A RETROSPECT
maturity, and some two months later, reporting one of his manoeuwes
she sums up admirably his usual political style as exhibited both in
Syria and Mesopotamia and the lack of character which went with
it: 'He wants', she wrote in a letter of z5 October, 'to get another
party going composed of the extremists whom he thinks he dominates
(in reality they dominate him)'.u
His ten years reign revealed other, baser, aspects of his character.
He was a womaniser. This in a Muslim ruler is of course in itself
nothing unusual or shameful, but there wr$ a furtive underhand
quality in his womanising. He was widely - and once publicly -
accused of seducing the wives of his ministers and officials, and on
his European jaunts he disported himself with mistresses, using the
title of Prince Usama.rz He also showed greed for money and posess-
sions: 'His attempts to acquire land for himself, for he had no private
fortune', remarks a writer in the Suraey of Internalional, Affairs for
1934, 'laid him open to criticism'.r8 What the rvriter meant may be
illustrated from a case which the United States minister in Baghdad
reported in a dispatch of July 1932. The case which, according to this
dispatch, was widely known and talked about, concerned an extensive
tract of land on the outskirts of Baghdad which an Armenian land-
lord had transformed into an orchard with forty thousand trees. The
king coveted the land and the government started expropriation
proceedings, having so changed the law that the compensation to
which the proprietor was entitled became derisory.r{
In the years following Faisal's accession it became the official
British refrain that Faisal was the free choice of Mesopotamia: 'We
have been accused frequently and vigorously', stated B. H. Bour-
dillon, a high ofrcial at the British residency in Baghdad, 'of foisting
an alien king upon a people unwilling to receive him. That', he
asserted, 'is sheer nonsense'.16 The evidence, of course, absolutely
contradicted this assertion. Some of it has been examined in another
work.rs It will sufrce here to refer to one incident characteristic of
the times. When Faisal came to Iraq the sous-prCfel of Tauriq in
the Kirkuk area one day received an order to organise a petition in
favour of Faisal's candidature, but towards the evening he heard a
rumour that the British had changed their minds. Having no means
of discovering how things really stood he decided to prepare two
petitions - signatures and all - one in favour of and one against the
candidature, and in due course presented both to his British superior.lT
The words of the American consul in fact sum up the situation
24r
 THE CHATHAM HOUSE VERSION
exactly: 'The Amir Faisal', he wrote in a dispatch of. 7 July r9zr,
'comes as the candidate for the throne of Mesopotamia. His candidacy
is very unpoprrlar, but he has the support of the government and will
probably win. No one rvill dare put forward another candidate or
make open propaganda against him. . . . Hou'ever it is still announced
that the people will be left free to choose whomever they desire'.lt
Faisal then, was brought to govern a country riven by obscure and
malevolent factions, unsettled by the war and its aftermath, and
confused by the sudden disappearance of a rule some four centuries
old; he had now to establish his authority and impose his will on men
in whom the collapse of the old order had awakened vast cupidities
and revived venomous hatreds. At the best of times Mesopotamia -
as its history shows - requires strong men to rule it; and Faisal, as
all who had reason to know him a6Teed, was a weak man. In order
therefore to govern his new state he had recourse to the shifts and
contrivances which weak men, placed in positions of power, have
to use: deceit, double-dealing, complicated intrigues, ambiguous
advances and still more amgibuous retreats. Faisal owed his throne
to the British; as Miss Bell put it in a private letter, 'We have carried
him on our shoulders'.ro And the British did continue faithfully to
carry him on their shoulders. The high commissioner, the British
advisers and inspectors, the Colonial Ofrce in London and British
representatives in Geneva used the power and resources of the empire,
to protect, uphold, shield and magnify their client. They could do
little else, for if Faisal in Iraq was their creature, they by the same
token were committed, were bound to him; for it became impossible,
unthinkable, in spite of any doubts or misgivings to abandon a policy
on which ministers and officials had publicly staked their reputations.to
it
But this British protection and support made all the more
necessary for Faisal to cultivate anti-British sentiment. He had to
govern a country among whose tribes anti-British sentiments had
been fanned to such an extent that civil war resulted; and he had to
govern with the help of ex-Ottoman ofrcials who had no reason to
feel grateful to Britain. 'There is as yet little patriotic feeling in the
country and a great deal of pro-Ottomanism', wrote Miss Bell in
September r9zt; 'There is a very large part of the population',
wrote the American consul in the following November, 'who would
welcome with open arms the return of the Turks'; and again in
January rgzz:'Fusal has never been popular. He was forced upon
the country and almost all the Arabs are said to harbour a resent-
242
 THE KINGDO}T OF IRAQ: A RETROSPECT
ment.'2r And some eighteen months later the verdict is the same:
'There appears to be absolutely no enthusiasm for Faisal in any part
of the countryand the opposition is guite open and often very bitter.'22
Here then was Faisal's dilemma; he could not dispense with British
military support, since he was a foreigner who had neither position
nor following in the country, and to create this position and this
following he had to oppose his benefactors, the British, and give
countenance to their enemies. The methods he adopted to resolve this
dilemma well illustrate his character. He appointed as chamberlain
of his court Fahmi al Mudarris, an ex-Ottoman official and a descend-
ant of a well-known Baghdad family of divines; a man who had all
reason to deplore and abominate the situation of his country and
the humiliation which British arms had inflicted on Islam; he was
not a friend of Faisal's patrons. On z3 August 1922, the first anni-
versary of Faisal's accession to the throne, the British high com-
missioner, Sir Percy Cox, coming to offer his congratulations, found
himself received by a crowd outside the royal palace who were
shouting hostile slogans; 'Evidently,' says the high commissioner in
his account of the incident, 'by design on the part of the king's
chamberlains, the leaders of the two extreme Nationalist parties had
been given appointments just before myself, and, after offering their
congratulations to the king, had prolonged their visit to the royal
apartments so as to ensure that they should be present when I
arrived.' And on his arrival they were stationed on the balcony of the
royal palace, making anti-British speeches to the crowd below. One
of these leaders was Mahdi al-Basir, a Shi'ite, one of that group of
Baghdad Shi'ites who, organised in the Haras Party, had done much
to encourage the uprising of the Euphrates tribes against British rule
in the summer of. tgzo. On this occasion it was 'by direction or
permission' of Mudarris, as the British letter of protest to Faisal put
it, that he was making an inflammatory speech'abusive of the British
in Iraq'. The high commissioner demanded that the king should
punish those responsible, but providentially for him, Faisal at that
very moment became incapacitated by illness and it was the high
commissioner himself who had to carry out, and incur unpopularity,
for the measures he had demanded.z8
Previous to this incident the king had been intriguing against his
own cabinet, presided over by Abd al Rahman al-Naqib, an upright
and honourable old man, and against pro-British elements in the
provinces. He attempted to draw to his side the Shi'ite divines who had
243
 THE CHATHAM HOUSE VERSION
led the anti-British rebellion two years before. 'It was then rumoured
in Baghdad', writes a biographer of Muhammad d-Sadr, one of these
divines, 'that His Majesty King Faisal expressed his feelings to-
wards the Naqib's cabinet . . . and asked that something be done to
destroy it. His Grace fal-Sadr] therefore assembled at his house in
Kazimayn the ulamas and some tribal heads . . . and deliberations
ended with a petition to be presented to His Majesty containing
national [i.e. extreme] demands which the Naqib's cabinet would not
be able to bear'.2{ An Iraqi minister who was then an administrative
official tells us in his memoirs that Faisal, in order to bring about the
downfall of his cabinet, incited Ali Jawdat - one of those Iraqi
officers who had been with him in Syrta - who was then mwtasarrif
of Hilla, to go to Najaf - a main Shi'ite centre - and rouse the Shi'ite
tribes so lately pacified by his British patrons. Ali Jawdat seems also
to have concerted a secret plan with the tribal leader Abd al-Wahid
al-Hajj Sikar, to set up in each tribe on the mid-Euphrates a shaikh
who would be the rival of the existing British-appointed shaikh, and
who would refuse to obey the incumbent shaikh's orders. A similar
tactic was followed in the Muntafiq, another Shi'ite area, by its
mutasaruif , Yasin al-Hashimi, who had also been a member of Faisal's
regime in Syria, but pro-British tribes were here so numerous that
they attacked him and Yasin had to flee the liwahe was supposed to
administer.z6 The king, in fact, intrigued to such good purpose that
the provinces were again in turmoil, and public order in the Muntafiq,
says the British official report, hung in a trembling balance. When the
cabinet indicated its disquiet at these proceedings and demanded that
the king should show unequivocably that it could rely on his support
and assistance, he characteristically replied with an ambiguity,
saying that he saw no reason to change his policy.26 We hear the echo
of these affairs in Miss Bell's letters to her parents. Miss Bell was
distressed by Faisal's mischievous activities and she went to remon-
strate with him and tell him how unhappy he was making her:
I began by asking him whether he believed in my personal sincerity
and devotion to him. He said he could not doubt it because he knew what
I had done for him Iast year. I said in that case I could speak with perfect
freedom and that I was extremely unhappy. I had formed a beautiful
and gracious snow image to which I had given allegiance and I saw it
melting before my eyes. Before every noble outline had been obliterated,
I preferred to go, in spite of my love for the Arab nation and my sense of
responsibility for its Iuture. I did not think I could bear to see the
evaporation of the dream which had guided me day by day.
244
 THE KINGDOM OF IRAQ: A RETROSPECT
She reproached him for stirring up the Muntafiq against the British
adviser, Major Yetts, who 'in the days rvhen I had upheld the Arab
cause against A. T. Wilson' has stood by her and her cause. The
interview was emotional; he kissed her hands at intervals ; on leaving,
it was she who attempted to kiss his hand and 'he warmly embraced
me'. 'I am still,' she confessed 'sous le coup ol this interview.'27 These
intense sentimental encounters could not of course make Faisal
more upright or more dependable. The bouleaersemext in which they
plunged the oriental secretary of the British residency indicate only
how sodden with emotion was her approach to oriental politics.
But it may be objected that while such behaviour merely continued
the tactics which Faisal had followed in Damascus, yet as the years
went by and his rule became fi.rmer the king changed his character
and shed his weaknesses; that his experience deepened and his
authority increased. But such is not the case. It is, of course, true
that his situation in Baghdad was vastly different from that in
Damascus; the cause however lay not in him but in the circumstances
he confronted. In Mesopotamia he did not have to contend with a
France bent on asserting its authority; he was, on the contrary,
surrounded by the solicitude and devotion of fond protectors, by
British ofrcials labouring throughout the length and breadth of the
land to establish his authority and increase his influence, and by the
Royal Air Force ever ready to punish tribal rebels and strike terror
in the heart of his enemies.2s Furthermore, the British government
which was doing so much for Faisal seemed anxious to give in to his
demands one after the other; it seemed anxious finally to be rid of
responsibility, and to bestow the plenitude of power on its client.
This is why Faisal's poticy, which he himself succinctly and exactly
defined as one of taking and demanding,ze a policy which failed
miserably with the French in Damascus, succeeded so brilliantly
with the indulgent British in Baghdad. Faisal's testing-time would
have come with the end of the mandate and the withdrawal of the
British power which time and again so providentially solved his
dilemmas for him. Fortunately perhaps for him, he died soon after
Iraq became fully independent, and he did not have to negotiate
unaided the murderous currents of Iraqi politics.
A decade of rule did not seem to increase his popularity. In a
dispatch of February r93z the American Chargd d'Affaires declared
that when Faisal appeared on the streets no one took much notice of
him. He himself has often seen the king pass along the main street
245
 THE CHATHAITI HOUSE VERSION
but the only people who seemed to take any notice were the
foreigrrers, who paused and lifted their hats.8o But Faisal himself
seemed to become cocky and over-confident. In a speech which he
gave torvards the end of r93r he recalled his brief, inglorious rule in
Damascus and told the Syrians that if they had listened to his advice
they would be enjoying independence like the Iraqis.sr He brought
back from his European trips admiration for Mussolini. He wanted
to emulate the Italian dictator, trying to concentrate policy in his
own hands in the belief that he could govern the country with the
help of a small body of advisers. A newspaper article, no doubt
inspired by him, advocated a one-party system and rule by an en-
lightened despot, the despot in question clearly being Faisal himself.82
A few months before he died he was, in the judgment of a high British
ofrcial, in a fair way to becoming a dictator.ss But it is extremely
doubtful whether he would have been able to sustain such a role in a
crisis or against determined opposition.
One episode, which took place shortly before his death, gives a
clue to what might have happened had he lived on. The Assyrians,
Christian hill people, who originally lived in south-eastern Turkey,
were seduced by Russian promises during the first world war from
their allegiance to the Ottoman state. They rose in rebellion, and
finally had to flee from Ottoman territory. The end of the war found
them, a miserable remnant of refugees in the care of the British
government (to whom they furnished contingents of efficient and
brave levies), who thought to settle them in Mosul, which the League
of Nations had awarded to Iraq, one of the reasons of the award being
that the Assyrians should not once again come under Turkish rule.
When Iraq became independent, relations between the Iraqi
government and the Assyrians went from bad to worse. The trouble
came to a head in the summer of 1933. The king was abroad and
Rashid Ali al-Gailani was prime minister in Baghdad. The Shi'ites
in the south were almost in open rebellion against the government.
To create a diversion and unite all Muslims against non-Muslims,
Gailani and his colleagues determined to hit the Assyrians hard. The
government detained their patriarch in Baghdad and dispatched a
force to Mosul under Bakr Sidqi which clashed lvith a body of armed
Assyrians and then carried out an indiscriminate massacre in the
Assyrian village of Simel. When the king heard of the patriarch's
detention and the dispatch of the army, he repeatedly sent emphatic
telegrams to his prime minister asking him to follow a policy of
246
 THE KINGDOM OF IRA9: A RETROSPECT

moderation, not to push the Assyrians to desperate acts, and par-

ticularly not to insist on forcibly disarming them alone, when all the
tribes of Iraq, including the Assyrians' Kurdish neighbours, disposed
of weapons which the Government was not proposing to take away.
The Government's measures, the king thought, were bound to leave
a deplorable impression abroad. Rashid Ali was not to be deflected
from his grim purpose by the king's objections; the honour of the
government, he kept on saying, must be upheld; we must teach the
Assyrians that they cannot rebel with impunity, firm measures must
be taken. We are sorry to have displeased Your Majesty, his last
telegram blandly said, but we apprehended no external danger which
could threaten the country as a result of the measures we took to
uphold the law.8{ The resolute Rashid Ati had his way; he brushed
aside the king and his apprehensions, and was proved right, for no
danger, except some League of Nations resolutions, ever did threaten
the newly won independence. This incident, like the palace incident
ol rgzz, shows that the king's character and position were still the
same as in Damascus;that, as in Damascus, a crisis or an emergency
would find him the plaything and the prisoner of his strong-rvilled
and violent followers. The massacre having taken place, the king
decided to return to Baghdad, where his last public act was to stand
at a balcony of his palace and acknowledge the acclaim of the deli-
rious crowd celebrating Bakr Sidqi's victory.ss Had he publicly
indicated his disapproval of the massacre, the crowd, incited by the
government, would probably have turned on him and deposed him.
There had indeed been rumours that he would abdicate in favour of
his son and 'strong indications', as the American minister put it, that
nationalists were threatening to force his abdication;and the crowd
acclaiming the Assyrians' massacre shouted not only 'Long live the
King' but also'Long live the Emir Ghazi' and'Long live King Ghazi'.
When Faisal died soon afterwards, a Baghdad newspaper went so
far as to allege that he had actually committed suicide.so
He was succeeded by his son Ghazi, who reigned until 1939 when
he was killed in a car accident. The son was even less suited than the
father to monarchical office. He was, as a British ambassador described
lim, as 'weak and unstable as water', of intemperate habits', choos-
ing as his boon companions palace servants and wild young army
officers.s7 The father at least had dignity and prudence, and was so
charming in his manner that he seemed to have captivated and
attached to himself those numerous British ofrcials who did so much
247
 THE CHATHAM HOUSE VERSION
to further his ambitions; he also had the good sense to trust himself
to their devotion, and to allow them valiantly to fight his battles
for him. Lord Keynes recounts a story which, whether true or not,
is as symbolic of Faisal's pathetic incompetence as of the methods
and the legends which accompanied his rise to power. 'It was about
this time', writes Keynes, describing the atmosphere of Paris during
the peace negotiations of r9r9, 'that the Emir Faisal, so it was
alleged, recited in M. Pichon's cabinet, unabashed by the naked
charms of Rubens' Marie de Medicis, a chapter of the Koran, rvhilst
Colonel Lawrence, in his capacity of the emir's interpreter, pro-
pounded an ingenious polifih for the creation of an Arab hegemony
{rom the Mediterranean to the Persian gulf, over Damascus and
Mosul and Baghdad'.se Of Ghazi, such a story could not have been
told. This raw youth, whose father worried about his backwardness,lo
was given to as violent courses as the wildest of his companions.
One of his pranks, which de Gaury reports, was to have a seryant's
face painted with Iuminous paint.a0 This waster was, however, by no
means uninterested in politics, whether internal or external. It is
highly likely that he was privy to Bakr Sidqi's coup of. 1936 against
Yasin al-Hashimi's ministry, if he did not actually inspire it. Yasin,
it would seem, had wished to marry his own daughter to the young
monarch and this inspired in Ghazi mistrust in his chief minister and
fear of his designs.al Yasin's brother Taha, who was dismissed as
chief of staff as a result of Bakr's cowp, recorded in his Diaries lis
conviction that the king was pleased by the coup d,'itat because
Yasin's government had sought 'to preserve his honour' by prevent-
ing 'this youth who inclined to be dissolute and lewd' from mixing
with'those who had no morals'. When the cowf took place Yasin, it
would seem, asked Ghazi to sign a proclamation denouncing it, but
the king was unwilling, and this led Yasin to offer his resigrration
without putting up any resistance. Ghazi's ex-tutor later informed
Taha that the king was boasting that it was he who had organised
the cowlt. Suspicion of Ghazi was strong among Yasin's colleagues
who had been unseated by the coup,so strong indeed that Nuri al-
Sa'id went so far as to propose his services to Ibn Sa'ud in securing
the Iraqi throne for one of his sons.az Shortly before his death in
rg3g, Ghazi it would seem was involved in another cowp d,'Ctat, an
abortive one - against Nuri al-Sa'id who was then prime minister.{s
In foreiga politics, Ghazi seems to have had the same irredentist
ambitions which are characteristic of his house. Propaganda on his
248
 THE KINGDOM OF IRAQ: A RETROSPECT
behalf was rife in Spia and Palestine, and his public pronouncements
reinforced this propaganda. At a military review, for instance, held
on the occasion of his birthday in March 1939, his speech referred to
'our Arab brothers in whose future and welfare we are interested'.
Several people reported, the American minister stated in a dispatch,
that the king had actually referred by name to Syria, Palestine, and
Kuwait, though the address as published did not contain these
references.'4 A Syrian who was then working in Baghdad tells us that
he wrote an incendiary article on Syria which was broadcast on the
king's radio station and followed by Ghazi's voice exclaiming, 'I run
to thine aid, I run to thine aid, O Syna (Labbayhi, labbayki ita
Swriya).46
A year or so before his death, he installed a private transmitter in
his palace (said to be a gift from the Nazis)ro and broadcast incite-
ment and sedition to the population of the principality of Kuwait
where, as a result, an abortive revolt broke out. One evening, shortly
before his death, when the prime minister was abroad, Ghazi sum-
moned the chief of the general staff and ordered him to arrange for
the army immediately to occupy Kuwait. The order threw his en-
tourage into a panic and they summoned the acting prime minister
who persuaded the king to abandon his scheme. Ghazi was succeeded
by his infant son, Faisal, who was brought up by his mother (who
died when he was still an adolescent) and by her devoted sisters. A
pleasant and harmless young man, he ascended the throne in 1953
and was mowed down by his army five years later. During his brief
reign he lived in the shadow of his uncle Abd al-Ilah, the regent and
crown prince, and of Nuri al Sa'id who, in the last years of his life,
ruled pre-eminent over all the politicians of Iraq. With the murder
of Faisal II the brief Sharifian period of Iraq, begun with intrigue
and civil war, ended in horror and blood.
Though Lloyd George agreed with Berthelot's estimate of Faisal's
character, he yet pleaded that 'the sheikhs' of Mesopotamia wanted
him to be king. How far was this the case? It is of course true that
when he was negotiating with the French a civil war was raging in
Iraq. The Shi'ite tribes of the Euphrates, inspired by their religious
leaders in Najaf, Karbala and Kadhimain, and by the incitement and
help of Sharifian agents from Syria,aT were in a state of dissidence,
attacking British troops, cutting communications and besieging
towns and administrative centres. But the Shi'ite divines who inspired
their revolt were not exerting themselves in order that Faisal and his
249
 THE CHATHA}I HOUSE VERSION
Sunni ex-Ottoman officers should be installed to rule over them from
Baghdad. These divines, encouraged by the departure of the
Ottomans, saw in the unsettlement of r9r8 an
Mesopotamia after
opportunity to obtain power and preponderance after so many
centuries of Sunni domiuation. When the British government, having
put down the Euphrates revolt, proceeded to instal Faisal and his
followers in Baghdad, their dismay was great. So strongly did they
manifest their discontent at this turn in events that Faisal's govenl-
rnent, under British inspiration, alleging as a convenient pretext
modern notions of nationality then quite unknown to the country,
had them deported from Mesopotamia on the score that they were
Persian subjects!48 The British official report, concerned to justify
these actions, itself gives an indication of the true state of affairs and
of the motives of the leaders of the revolt of tgzo.
The political ambitions of the Shi'ah Religious Headquarters fwe read
in the report for rgzz-3) have always lain in the direction oI theocratic
domination; they lud been sedulously checked by the Turks, but it might
reasonably be hoped that the Arab government in its initial stages would
it could be deprived of
not ofier so resolute an opposition, provided that
British support. The Mujtahids, who are almost without exception
Persian subjects, have no motive for refraining from sacrificing the
interests of Iraq to those which they conceive to be their own, nor does
their attitude of obscurantist detachment from the world, and from any
science save that which is based on the Moslenr scripture, place them in
a position to gauge the needs of a state which is striving in the path of
progress and enlightened self-government. {e

The Shi'ites remained unconvinced of these benefits and persuaded

that the Baghdad government was a creature of the British and an
instrument of Sunni persecution, different from its Ottoman pre-
decessor only in that it was without benefit of long legitimate posses-
sion, and in that its rule did not derive from conquest, but was
bestowed upon it by the British. A Baghdad journalist recounts how
he took a trip to the Euphratesin rgzT in the company of Glubb and
of a Shi'ite tribal leader who had taken part in the revolt of. rgzo.
They were looking at one of the battlefields of the revolt and Glubb,
it seems, observed that the objects of the uprising had been attained.
'You now have', the journalist reports him as saying, 'a government,
a constitution, a parliament, ministers and officials, what more can
you want?' Whereupon the tribal leader intemrpted him, saying
bitterly, 'Yes, but they speak with a foreign accent.'60
250
 THE KINGDOM OF IRAQ: A RETROSPECT

Another Shi'ite who took some part in the uprising of rgzo in his
Memoirs bitterly comments on the contrast between the British
treatment of those who took part in the Sharif's revolt and those who
collaborated in the Iraqi revolt. In Iraq, he says, the former were
overwhelmed with wealth, spoils and position so that 'having been
poor, they are now men of large means and having been famished,
are now satiated'.61
Shi'ite grievances remained alive, and led again and again to revolts
and agitations in the Euphrates, engineered and exploited by the
politicians of Baghdad in their unbrilded quest for power. Even
before the end of the mandate, the Baghdad politicians were preparing
to exploit these grievances, and the Shi'ite leaders, tribal and reli-
gious, were getting ready to extract what advantages they could
from the play of political rivalries in the capital. At the beginning of
r93r Yasin al-Hashimi, Rashid Ali al-Gailani and Ja'far abul-
Timman, then associated in opposition to Nuri al-Sa'id's administra-
tion, visited Karbala to organise Shi'ite support; some six months
later, when strikes against Nuri were being organised in Baghdad,
the Shi'ite tribes were reported to have offered their assistance to
Yasin who informed them that the time was not yet ripe since the
British were still in control, and that they should prePare for action
as soon as Iraq became an independent member of the League. When
this event took place, we find the Shi'ites informing Yasin that he
would not receive their support unless he was ready to offer them the
majority of the cabinet posts.Ez The Baghdad politicians - Sunni
ex-Ottoman officers and civil servants - who were claiming to deliver
Arabism from Ottoman oppression - in exploiting and exacerbating
the Shi'ite grievances were benefiting from the traditional anti-
Shi'ite policy of the Ottomans. This anti-Shi'ite policy had its roots
in the traditional enmity and mistrust obtaining between the Per-
sians and the Ottomans since the sixteenth century. In fomenting an
anti-British rising in r92o the Shi'ite divines no doubt hoped to gain
and establish ascendancy for their community in a country where the
Shi'ites were a majority, albeit hitherto a powerless one. It is difficult
to say whether the failure of the uprising or the importation of
Faisal and his men which followed it was to them more galling.
A Sharifian regime in Baghdad, at all events, spelt renewed Sunni
dominance. Bazirgan, who was in Faisal's entourage when he arrived
in Mesopotamia, reports as a kind of premonitory symptom the fact
that Faisal's followers were already asking how many Shi'ites had
25r
 THE CHATHAM HOUSE VERSION
been in government employment in Ottoman times.68 Sunni-Shi'ite
antagonism was a constant of Iraqi politics under the mandate. The
government, the Shi'ites complained, was the privilege of Sunnis,
against whose fanaticism nobody would now protect them. These
Shi'ite grievances we find expressed in a document which appeared
early in r93z when the mandate was nearing its end. Issued by the
'Executive Committee of the Shiahs in Iraq', the document is no
doubt in some respects a partisan exaggeration; but it is on the whole
valuable, not only because many of its complaints were well-founded,
but because it gives us some idea of Shi'ite disafiection towards the
political institutions of Faisal's kingdom: 'Since the House of Parlia-
ment has been formed we have never heard of one Shiah Moslem
having been elected from the northern [i.e. Sunni] district; whereas
from our districts only one or two fShi'ites] are elected and the rest
are from the other faction'; no Shi'ite had been given the ministry
of the interior 'or other such important post'; the government's
land policy 'has created all kinds of enmities and feuds between the
shaikhs of our tribes'; government teachers 'imbue the students with
all kinds of religious beliefs'; Shi'ite officials were few in number and
inferior in position, and the document ended by calling on Great
Britain to 'take efiective measures and relieve us from the disgrace-
ful rule of this faction and the religious fanaticism it exerts to satisfy
its personal ambitions'.6{
The end of the mandate provided no abatement of Sunni-Shi'ite
friction. On the contrary, As Yasin al-Hashimi predicted in r93r, the
total disappearance of British control enabled the Baghdad poli-
ticians to exploit intensively Shi'ite grievances, and the mid-r93os saw
the outbreak of one revolt after another, encouraged and abetted by
one faction or another in Baghdad, and feeding upon Shi'ite griev-
ances. One such revolt was prefaced in March r93S by a Shi'ite
manifesto, the first article of which stated:

Since independence until today the Iraqi government has lollowed a

foolish policy inconsistent with the interests of the people. It has adopted
the policy of sectarian discrimination as a basis for rule, usually having
only one or two acquiescent ministers in the cabinet to represent the
[Shi'ite] majority. It has followed the same policy in the appointment of
officials, and its partiality in the selection of civil servants and members of
Parliament has become obvious. , . . fn order to infuse once more con-
fidence and a sense of security in the people, and to do away with
discrimination, all must participate in the cabinet, in Parliament and in
252
 THE KINGDOM OF IRAQ: A RETROSPECT
all public employments, as they share in the payment of taxes and
military service.Ds
Faisal himself, towards the end of his reiga, showed that he was quite
aware of the Shi'ites'attitude to the regime. In a memorandum which
he wrote and circulated among his intimates in rg3z he said that the
Shi'ites believed that death and taxes were their lot, while official
positions went to the Sunnis, and that even the holy days of the
Shi'ites were not respected by the government.s0 Nor were the Shi'ites
mistaken in their grievances. In the Parliament of 1933, for instance
- and in this it was typical of other Parliaments that preceded or
succeeded it - a country predominantly composed of Kurds and
Shi'ites returned a Chamber of Deputies in which there were twenty-
eight Shi'ites, sixteen Kurds, and thirty-six members drawn
from the small Arab minority which the British Government had
installed in power in 19zr.6? The Shi'ites had other grievances. One,
which they shared with the Kurds, the Yazidis and the other
minorities, was that the government, which entertained grandiose
pan-Arab ambitions, was intent on making Iraq into a great middle-
eastern military power; for this universal military conscription was
necessary. So long as the mandate lasted, in alliance with the Kurds
they had successfully opposed its introduction, since the British
government was also unwilling to agree to it.68 With the disappear-
ance of British control, the government was able to push through its
parliament the necessary legislation. But the attempt to apply the
law caused resistance not only among the Yazidis but among the
tribes of the south, who revolted in September 1935 and in February
and April 1936. As they said in a letter written before the April
1936 revolt, they found it incredible that the government should
impose such a burden on them. Government, they wrote, had a right to
their taxes and their obedience and had never demanded more.6e
The pan-Arabism of the regime sometimes also took a form offensive
to Shi'ite religious beliefs. The pan-Arabs wished to revive the
glories of Arab empire, and to the more fervent :rmong them this
meant exalting the purely Arab Umayyads, depreciating the
Persianised Abbasids, and denouncing Shi'ism as a foreign, sub-
versive heresy. ln t9z7 a Syrian Muslim teaching in a government
college published a book in which the Umayyads, who had persecuted
the caliph Ali and his house, were glorified. The Shi'ites took great
offence at this insult to their religion and organised demonstrations
in Ba6hdad to which the Sunnis replied. The demonstrations turned
253
 THE CHATHAM HOUSE VERSION
into riots in which many students and policemen were killed.0o The
Shi'ites were a6ain insulted in 1933 by a Sunni polemist who de-
nounced them as anti-Arab in belief and tendency.cr The scandal
caused by his pamphlet led to those disturbances to alleviate which
perhaps the repression of the Assyrians was decided upon.
If, despite Lloyd George, 'the sheikhs' neither wanted nor were
ever reconciled to Faisal's regime, who then was in its favour? In a
Muslim country the cities are traditionally pre-eminent in politics.
What did the cities think of Faisal? When the news of his im-
pending arrival in Mesopotamia reached Basra, four thousand,
five hundred notables, as the British official report indicates, signed
a petition which an 'influential deputation' presented to the high
commissioner, requesting that they should not come under Faisal's
control.oz Sulaimaniyya was a purely Kurdish town and the Kurds,
as will be seen, would have no part or lot with an Arab government.
Kirkuk, as the League of Nations Commission on Mosul reported in
1925, was Turkish; Arbil, the commission also wrote, was divided
into seven boroughs. 'We interviewed the mwkktarc of these boroughs.
When asked what was their nationality five replied that they were
Turks, one that he was as much a Turk as a Kurd, and the seventh
stated that he was a Jew'.08 Of these towns and cities, only Mosul,
a Sunni Arab city on the fringe of a Kurdish and Turkish area, could
perhaps be said to favour an Arab Sunni government for Mesopo-
tamia. Even so, it proved by no means easy to elicit unequivocal
support for the kingdom. The residency had to exert its influence,
and as Abdullah al-Qassab, who was then Iraqi mulasarit of Mosul,
tells us in his memoirs, it proved necessary for him to take in hand
the witnesses appearing before the commission; and since the notables
were reluctant to declare for Iraq and Arabism, he also found it
necessary to organise and encourage popular and student demon-
strations. Though he is rather discreet on the subject, we may suspect
that he also winked at even more forcible methods by which Turkish
sympathisers - who seem to have been numerous - were persuaded
of the error of their ways.6a Baghdad itself, the capital and most
important city of Mesopotamia, could hardly be considered an Arab
Sunni centre. It was the administrative and commercial centre of
the area, a city with an illustrious Muslim past, and with a popula-
tion mixed in the extreme; in it lived Shi'ites, Kurds, Persians, and
the official and religious classes who supplied the personnel of the
local Ottoman administration; in it the Jews were actually the
254
 THE KINGDOM OF IRAQ: A RETROSPECT

largest single group in the population.0s The Jews declared that they
did not want Faisal, and the Shi'ites, as has been seen, were playing
a tortuous game which they lost when Faisal was imposed on them'
As for the official classes, they had remained loyal until the end of the
Ottoman state and were now smarting under the humiliation of
defeat at the hands of a Christian Power, a defeat to which they might
yet learn to be resigned but which in rgzo was still too near not to
arouse bitterness and hatred. They were certainly anti-British but
this did not mean that they were ready to welcome or even to acknow-
ledge the leadership of Faisal and his followers, who had deserted the
Ottoman state in the hour of its need and collaborated with the
enemy. The older and wiser among them, such as the principal Sunni
notable in Baghdad, Sayyid Abd al-Rahman al-Naqib, who accepted
defeat and cooperated loyally and honourably with the British, indi-
cated in no uncertain terms their distaste for, and poor opinion of
Faisal. For these ofrcial classes had never taken seriously the plots
and agitations of the nationalist officers who went over to the British
alter rgr4, and had never shown the slightest inclination to secede
from the Ottoman empire. The chroniclers, it is true, record the brief
appearance, before tgt4, of. so-called nationalist secret societies in
S".r", Baghdad and Mosul, but these, it would seem, were inspired
by the Basra magnate Sa1ryid Talib, the better to prosecute a privgte
quarrel with Constantinople, and were no more heard of when the
Sayyid and the state were reconciled. Indeed, when war broke out the
gritish government made overtures to Sayyid Talib which he refused.
He was caught by the British on a mission to incite Ibn Sa'ud to
join the Ottomans; he was deported to India where he remained
until r9r7. This episode, it may be said in passing, can perhaps throw
light on a period in the life of Nuri al Sa'id which he always kept
ob..or.. Before joining the sharif's rebellion in 1916 Nuri was confined
in a prisoner-of-war camp in India. He had not been taken prisoner
in battle as an officer in the Ottoman arrny, for he had deserted from
that army a few months before the outbreak of war and had taken
refuge in Basra with Sayyid Talib. It was there that the British found
him when they occupied Basra, and deported him to India. Why, it
may be asked, wali a man with such a record, a deserter from an
enemy army, treated in such a way? Can the explanation be that he
fell under suspicion because he was a retainer of Sayyid Talib's, and
thus he was anxious to disown the connection when the Sayyid
became later Faisal's rival? Sulaiman Faidi, Sayyid Talib's principal
255
 THE CHATIIAM HOUSE VERSION
political lieutenant at that period, whose Memoizs shed so much
light on these obscure events, has recorded that when T. E. Lawrence,
who visited Basra in r9r5, tried to persuade him to undertake an
anti-Turkish movement in Mesopotamia, he refused and informed
Lawrence that if the Turks were the enemies of the British, it did not
follow that they were also the enemies of the Arabs.cc Neither the
towns then, nor the Shi'ite tribes could be said to have wanted Faisal;
some, as has been seen, .were actively opposed to him and his party.
Exactly the same is true of the Kurdish tribes of the north. They
vehemently declared that they had no desire to be ruled from
Baghdad. Immediately after the war the British authorities had.
officially informed the Kurdish tribal chiefs that there was .no inten-
tion of imposing upon them an administration foreign to their habits
and desires'.6? When Faisal was imported into Iraq, the north as a
whole had first to be coerced by the Royal Air Force and then gradually
coaxed by British officials, using their influence and good repute, into
casting their lot with the Baghdad regime.os As Bourdillon publicly
admitted as late as r9z4 it was absurd to say that the Kurds wanted to
merge with the Arabs.60 It is clear that when the League commission
investigated the Mosul territory in r9z5, the Kurds, as well as other
sections of the population, would have emphatically desired to join
Turkey had they not been given the impression that British oftcials
would remain for a long time to guide and control the actions and
policies of the Faisal regime; and the commission itself recommended
that the territory be attached to Baghdad only on condition that the
British mandate would last for at least twenty-five years.
But we may doubt whether the mandatory ever intended the
mandate to last for anything like a quarter of a century .ln rgzz the
text of the Anglo-Iraqi treaty had originally set for the mandate a
term of twenty years. Owing to agitation in parliament and the press
about the cost of holding Mesopotamia, the Conservative govern-
ment which succeeded Lloyd George's administration reduced this
term to four years. The amended treaty was ratified in rgz4 after
strong British pressure, and the Mosul issue figured a great deal in the
debates preceding ratification. To overcome the powerful resistance
to the treaty which was organised in the constituent assembly and
on the Baghdad streets, the British authorities carried on a press
campaign in The Baghd.ad. Times - their official mouthpiece - which
threatened that unless the treaty was ratified Mosul would be lost to
the Turks. On z June rg24 the newspaper wrote that the deputies
256
 THE KINGDOM OF IRAO: A RETROSPECT
'ought also to know . . . that if they do not ratify the treaty they will
probably lose Mosul. If the treaty is ratified, Britain intends to do all
it ti"r in her power to keep the old Mosul Vilayet as part of Iraq"
"t on 6 June: 'Rather than have Sir Percy Cox and the full
Again
might of Britain to defend Mosul, the Assembly prefers to trust
Sh;ikh Ahmad al Shaikh Daoud [a prominent opponent of ratifica-
tionl to defend Mosul against the Turkst' Two days later an editorial
proclaimed with liberal use of italics: 'Britain, the country with the
noblest record in Europe, has offered to help Iraq to become free
and independent in four years at rnost, pethafs in l,ess.' Finally on
ro June - the climax of the campaign - again making heavy use of
italics, the leader suggested: 'lVe think tke gouernruent woul'il d'o well'
lo ask each member oftoday's session publicl,y to state whether he wishes
to rcstore Mosul to the Turks or to keep it for lraq.'7o When that day,
in the late hours, enough deputies were finally got together to provide
a majority for ratification, the motion ratifying the treaty which
they approved stipulated that this instrument would have no force
if the British government did not safeguard the rights of Iraq in the
whole of the Mosul vilayet.?l And, as is well known, the British did
their best to secure this province for their client'?z But when the
Mosul commission recommended that Iraq could have the vilayet
only on condition that Britain continue to be the mandatory for
twenty-five years, a situation arose which neither the Anglo-Iraqi
treaty nor the debates which preceded it had contemplated' It is
instructive to note Miss Bell's reaction to the recommendation of the
Mosul commission. As early as March 1925, when the commission
was still in the country, she gathered unofficially from the Italian
secretary to the commission who was her informant that such a
recommendation was likely; writing to her step-mother she remarked
how silly such a stipulation was since in the last resort, the League of
Nationswas quite powerless to enforce it, and she added:'I don't
think it will matter.'7s She was, of course, right' When the report
was laid before the League the British government abounded in
promises and assurances, and Mosul passed to Iraq. Barely a year
iater we find the ending of the Iraq mandate being already actively
discussed. 'I do not think', remarked Amery to Austen Chamberlain
in a letter of 4 April tgz7,'that anyone at Geneva fifteen months ago
dreamt that we should Propose Iraq for membership of the League
in 1928, and at first sight I am inclined to think that we might have
trouble from Turkey, as well as from the League, on the ground that
257
 THE CHATHAM HOUSE VERSION
we had secured the Mosul frontier by a trick'.?{ In the event, the
mandate lasted barely six more years, which saw the British govern-
ment rapidly abandon one after another of the responsibilities it had
solemnly accepted.
The Kurds and the Turks - whom with misplaced ethnological
zeal the British ofrcials and the Iraqis after them have insisted on
calling Turkomans - of Kirkuk, Sulaymanieh, Arbil and Mosul, to-
gether with their rich oil fields, were given over to an Arab regime
which came to dispose of the vast oil revenues how and where it likecl.
The Kurds in particular could with justice complain that left to its
own devices the Iraqi government would have never been able to
bring them into subjection; that pressure exerted by British ofrcials
and bombing carried out by the Royal Air Force until the very eve of
independence alone subdued them, delivering them to the alien,
heavy-handed, but precarious rule of Baghdad.Ts It is, of course,
not unusual in the middle east for government to be exercised by one
group over other alien groups. Such exactly was the situation of the
Ottomans before the destruction of their empire. But the Ottomans
had exercised rule not by false pretences but on the strength of their
military and administrative ability. Again, the Ottoman govern-
ment was not given to doctrinaire adventures, while the Baghdad
government was a government of pan-Arabs, perpetually looking
beyond the frontiers of Iraq to other Arab territories, and dreaming
to be the Prussia or the Piedmont of a new Arab empire. The Kurds
had no use for such dreams; they might say, and they did, that the
state of which they formed part was Iraqi, not Arab. These things it
was possible to say before the British finally relinquished their
mandate;76 after tg3z, with the Baghdad government enjoying the
utmost plenitude of power, talk of this kind became disloyalty and
treason.
British action then, from rgzo until the end of the mandate in
1932, worked powerfully to create in Baghdad a centralised govern-
ment ruling over a population disparate and heterogeneous in the
extreme, whom no ties of affection, loyalty or custom bound to its
rulers. To establish the authority of these rulers, therefore, the
British, following the logic of their choice, had to exert their power
and their influence and eliminate all potential and actual resistance
to them; and the fortunate Baghdad government found at its disposal
the Royal Air Force to coerce and to inhibit all opposition, and devoted
British officials who used their prestige, ability and good name in its
258
 THE KINGDOM OF IRA9: A RETROSPECT

favour. Seldom did a government of Mesopotamia have, in the past,

the benefit of such assets. The British tamed the Shi'ites and Kurds
and made it clear to the Jews, the Assyrians and the other groups
that they had to look to Faisal and his men for their protection and
welfare. Under their auspices a constitution was promulgated which
concentrated all authority in a cabinet responsible to a legislature.
This constitution, moreover, deliberately denied in all its provisions
any safeguards for the various large and important communities who
found themselves, willy-nilly, subjects of the Baghdad government.
Many attempts were made to secure and entrench some safeguards
for them, but they came to nothing. The Baghdad politicians, with
the centralising instincts of ex-Ottoman officials set their faces
against it, and it does not seem that the British officials who then
guided and supervised them expressed any misgivings about the
working of a constitution on the Westminster model in the peculiar
conditions of Mesopotamia. The arguments against separate repre-
sentation as expressed in the Constituent Assembly is exemplified
by the words of Da'ud al-Chalabi of Mosul, in the debate of 3r July
1924.

It has been said [he declared] that minorities should be given a fixed
number of seats in the Assembly regardless of their proportion among the
inhabitants. What is the reason for this demand? When we $'ere con-
sidering the matter in committee we summoned the representatives of
the minorities to inform ourselves of their allegations and we asked them,
Why do you want deputies out of proportion to your numbers? Their
answer was silence. If they believe in our brotherliness and rely on our
patriotism why do they demand more than their due? The population of
Iraq is known, and for every twenty thousand inhabitants there is a
deputy. If we allot extra deputies to them, we will be doing an injustice
to the majority, but justice should apply to all. Is it right to apply the
rules of the constitution to one group and not to another?

The speaker went on to say that the example of the Ottoman empire
had shown that minorities should not be given privileges which in the
end would harm both majority and minority. The sultans had ceded
such privileges ari an act of grace, but in the end they had come to be
considered a standing right and had threatened the very existence
of the state.T?
In the conditions of Iraq then, such a government was bound to be
a centralised despotism. The constitution contained no such checks
and balances of the kind made familiar by that of the United States;
259
 THE CHATHAM HOUSE VERSION
nor did the country, after the levelling action undertaken by the
British government from tgzt to tg3z, contain independent centres
of power able to check, short of rebellion, the actions of the Ba6hdad
government. The cabinet, it is true, was supposed to be responsible
to the legislature. But even before the mandate ended it had become
clear, as the Report on the Administration of Iraq for tgzS admitted,
that elections and representative government were, in Iraq, a
mockery.?8 The writer of the Report consoled himself with the thought
that if the Iraqi chamber of deputies was not what is normally
meant by a representative assembly, yet elections 'produce a body
of men capable of criticising the proposals of the executive and of
effectively resisting unwise legislation which might otherwise be put
through by a small executive not too closely in touch with rural
feeling'. It did not seem to occur to this writer that an assembly
which consisted of creatures of the government, nominated by the
minister of the interior, and elected on the instructions of his ofrcials
in the provinces, was not best calculated to oppose a policy of
resistance to the government. What was already apparent during the
mandate became unmistakable during independence, namely that
the legislature could not control the cabinet, but that on the
contrary, elections to the chamber of deputies and appointments to
the senate were an additional weapon in the hands of the govern-
ment wherewith the better to control the country.70 A curious and
revealing incident which took place in the last years of the monarchy
shows that it had come to be universally accepted that election was
exactly equivalent to appointment. In 1953, the People's Socialist
party - i.e. Salih Jabr's factionso - decided to boycott the elections.
One of its members, a tribal leader from the Euphrates, sure of being
returned, disagreed with this decision. He himself, he said, was not
prepared to withdraw his candidature unless the party's members
who were senators - and membership of the senate was by appolnt-
ment - also resigaed, since, as he claimed, both deputies and senators
were equally appointed and there was no difierence between them.8l
fraq under the monarchy faced two bare dternatives: either the
country would be plunged into chaos or its population should become
universally the clients and dependents of an omnipotent but capricious
and unstable government. To these two alternatives the overthrow
of the monarchy has not added a third. The quality of government
in Iraq and the outlook it had bred in subject and servant alike, has
been sensitively described by an officer of the royal airforce who
260
 THE KINGDOM OF IRAQ: A RETROSPECT

spent some years in the Euphrates towards the end of the Mandate
Here [he wrote], the structure of governmerrt is shaky ,td i*p".-"-
nent, IVloreover, such control as government exerts over one's afiairs is a
terribly personal one. Government is not, as with us, a machine which
grinds out laws; takes money out of one's Pocket or puts money into it;
forbids one to do this and permits one to do that with dispassionate
implacability. It enters into the house here' It knows that you have four
sons and that one of them is a post office official in Mosul. It knows that
you have Turkish leanings, atrd that, as a natural consequence of such,
you are not to be trusted. It knows that you were friends with Hamid
Khuluf before his exile, that you are therefore probably sending informa-
tion to Persia, and that it must on that account consider in a fresh light
what to do rvith your claim for water-rights against Muhamed Derwish.
It rnakes a vital difierence to the issue of this or that land case whether
Abdul Qadir happens to be Mutesarif at the time of its coming before the
courts or whether he has been transferred to another district and some-
one else is sitting in his place. . . . It is this grossly personal element in the
all-pervading activities of Government which evokes from the uneducated
people that quality which we are all too apt to dismiss as insincerity,
but which is, in reality, nothing but the inevitable compromise of any
simple man chased by the bogey of insecurity. For an Englishman with a
clear conscience there are few occasions when, in facing an acquaintance,
he is tempted to exPress views at variance with his true ones. But the
Iraqi before an official, or even before another of his own kind, is in
doubt. He must propitiate, and sPeak fair words. His Position is unstable.
There is no pernanence. He knov/s that the fact as to whether the official
has a good or bad opinion of him will affect his private life vitally. He
feels the ground shifting beneath his feet. It is the same with the official
himself when he addresses a superior. He too feels the ground quaking
beneath him, feels his confidence welling out. He may be sacked because
his enemies have spoken ill of him. There will be no redress for him, no
rehabilitation, unless he has influence in high places. . . .82
The attitude of the ruIing classes to the population they ruled was
one of disdain and distaste: they were townsmen ruling over a popula-
tion of primitive countryrnen; they were Sunnis ruling over Shi'ites,
Jews, Christians and other outlandish sects; they were the
govern-
ment in its exalted maiesty and boundless Power, the others were the
subjects who must be prostrate in obedience. The texts of proclama-
tions to the tribes in revolt are characteristic and revealing: The
government desires to spare you, come therefore with all speed to the
offices of the government and offer your obedience; otherwise the
government will punish you, and yours will be the responsibility.
26r
 THE CHATHAITI HOUSE VERSION
When lve consider the long experience of Britain in the government
of eastern countries, and set beside it the miserable polity which she
bestowed on the populations of Mesopotamia, we are seized with
rueful wonder. It is as though India and Egypt had never existed, as
though Lord Cornwallis, Munro and Metcalf, John and Henry
Lawrence, Milner and Cromer had attempted in vain to bring order,
justice and security to the east, as though Burke and Macaulay,
Bentham and James Mill had never addressed their intelligence to the
problems and prospects of oriental government. We can never cense
to marvel how, in the end, all this was discarded, and Mesopotamia,
conquered by British arns, was buffeted to and fro between the
fluent salesmanship of Lloyd George, the intermittent, orotund and
futile declamations of Lord Curzon,88 the hysterical mendacity of
Colonel Lawrence, the brittle cleverness and sentimental enthusiasm
of Miss Bell, and the resigned acquiescence of Sir Percy Cox. What are
we to say when we find a State Paper presented by a secretary of
state to Parliament in t929, declaring without the suspicion of a
doubt or the shadow of a qualification that 'it seemed evident . . .
that Iraq, judged by the criteria of internal security, sound public
finance, and enlightened administration, would be in every way
fit for admission to the League of Nations by tg3z' ,8{ and fit, there-
fore, to exercise the unfettered sovereignty which independent states
possess? What, save that the style of State Papers, like so much else,
suffered during the first world war irremediable degradation?
But were the wages of degradation, we may ask, at least substan-
tial? Let us look briefly at the record. The British imposed Faisal
on Mesopotamia. But Faisal had been earlier imposed by the British
on Syria and his followers had used it as a base from which to foment
rebellion in Mesopotamia. Faisal's imposition on Mesopotamia there-
fore looked, paradoxically, like an act of weakness. Miss Bell, coming
back from the Cairo conference where Faisal's appointment was
decided, admitted as much in a letter to Engert: 'The tribes of the
Euphrates,' she wrote, 'discouraged by the failure of the rising which
they now regard as a relapse into madness, are also bewildered to
find that the sharif's house which last year (so they were told) was
anxious to turn us out, is now regarded by us as a suitable source
from which an amir might spring'. Miss Bell went on to deny that
Faisal had a hand in stirring up the countryi but since this assertion
is flatly contrary to the evidence we may regard it as expressing not
the historical truth but her emotional commitment to Faisal, whom
z6z
 THE KINGDOM OF IRAg: A RETROSPECT
in the same letter she describes as 'a man of high principles and high
ideals'. But in any case, whether or not the Sharifians were respon-
sible for sedition in Mesopotamia this, as she wrote, was what the
propagandists said and, she added, 'it was believed'.86 The subtleties
of British policy after Faisal's establishment were not calculated to
diminish bewilderment and perplexity in the country. Reviewing
P. W. Ireland's lraq in 1938, a British ofrcial who knew Mesopotamia
under the mandate, wrote: 'Sir Percy Cox, Sir Henry Dobbs, Sir
Bernard Bourdillon, and above all Sir Kinahan Cornwallis kept on
insisting: "Let Mutasarnls lprifetsl make mistakes if they want to,
don't hamper their initiative. The best way to learn and appreciate the
task of administration is by being free to act on one's responsi-
bility".'eo This confusion between the activity of governing and the
activity of educating is in itself and at all times fatal. Its consequences
for the people of Mesopotamia were always unpleasant and sometimes
disastrous. As for the British, it eroded their prestige and gave them
a bad name for unreliability and deviousness; for who in their senses
could believe that British advisers, in shielding and supporting
native officials who were incompetent, t5rrannous and comrpt, were
only applying the educational theories of Sir Percy Cox, Sir Henry
Dobbs, Sir Bernard Bourdillon, and 'above all' Sir Kinahan Corn-
wallis? No wonder that, as a writer put it in the early da_vs of Faisal's
reign, the mass of the people neither understood nor knew how to deal
with the Iraqi government:
In Turkish days [he continued] they knew their position, and knew
that they could usually get what they wanted for cash, while in the days of
the British government they knew equally well that bribery was useless.
They now see the same officials of the old Turkish days back in office
again, but with British advisers somewhere in the offing, and they are
mystified. They know the official can be bribed; they have bribed him
before, but neither the official nor the Arab knows quite how much the
adviser sees or what will happen if he does see. . . . It is this [the writer
concluded] which makes many of them think that the days of the Turks
were the best after all, and might be the best thing for the future.rT

British advisers and inspectors in the decade between Faisal's

accession and the end of the mandate found themselves, it is true,
in an impossible position. The executive power lay in the hands of the
Iraqi government and its agents and they were merely supposed to
advise and supervise. Such advice and supervision was, on the one
hand, deeply (and naturally) resented, and wa.s, on the other, quite
263
 THE CHATHAM IIOUSE VERSION
ineffective. This ineffectiveness had a simple origin : the British govern-
(which alone could have made the advice of British advisers efiective)
was interested not so much in the good government of Mesopotamia
as in speedily shedding all responsibility for it. British advice and
inspection became therefore a make-believe and a rigmarole and it
became profitless to cultivate their friendship or be loyal to them.
This uneasy and equivocal situation is acutely observed by a British
offrcial (whom we have already quoted) who was stationed in the
Euphrates in the late rgzos. A propos British officials serving with the
Iraq government, A. D. MacDonald wrote
The independence u'hich comes from security and the confidence
which is the fruit of loyal cooperation towards a common goal, are
lacking. The pressure of material circumstances weighs on this decent
Iittle group of Englishmen, and robs them of their liberty of thought and
action, They turn aside to compromise, chafe at the necessity of doing
so, and beginto hate their masters for forcing them into hating themselves.
The spirit of enslavement galls and produces in the masters something
akin to contempt. These shadows of hatred and contempt are discreetly
cloaked over by good manners, but the percipient observe that they are,
for all that, present. British prestige declines.8s
To illustrate the make-believe which British policy encouraged
in Mesopotamia, and to contrast it with the reality, we may set side
by side two documents emanating from the same official, Sir Henry
Dobbs, who succeeded Sir Percy Cox and preceded Sir Gilbert Clayton
as high commissioner in Baghdad. The first is a draft dispatch -
meant for eventual publication - which Dobbs sent to the Colonial
Oftce early it rgzT for their observations and emendations. The
draft dispatch tries to make out a case for the British laying down the
mandate, and in doing so, makes use of the rhetoric by which such a
policy had been advocated and defended: 'The more we show our-
selves disposed to withdraw from lraq and to foster her advance to
real independence', lays down the dispatch with assurance, 'the
greater and more permanent will be our influence in that country';
and pressing into use the cadences of the English Bible it afrrms with
self-satisfied virtue: 'So true is it that whosoever will save his political
influence shall lose it, but whosoever will lose his political influence
for the sake of right dealing the same shall save it.'t0 These were the
public and ofrcial sentiments, maintained against all objections and
in the face of the evidence. It is instructive to compare this dispatch
with another from Sir Henry Dobbs to the colonial secretary written
264
 THE KINGDOM OF IRAg: A RETROSPECT
at the end of 1928. In this later dispatch - which was not meant for
publication - the high commissioner explains that Faisal was im-
ported by the British and had had no time to strike roots, that there
was little affection for or awe of the crown, that there was no national
consciousness outside the schools of Baghdad and Mosul (where, as
will be seen, the ministry of education subjected pupils to intensive
indoctrination) and no respect for courtiers and politicians. Dobbs
went on to affirm that the strength of the Iraq government rested
overwhelmingly on British support and on the fear inspired by British
aeroplanes and armoured cars.0o It was not only the high com-
missioner and other British officials who were aware of this gulf
between things as they really were and their official and public dis-
guise. The country's official classes therefore concluded that the British
in affirming that the emperor was most splendidly clothed, were
either gullible or hypocritical. And in both cases it was useless and
dangerous to trust and rely on them.
The very bringing of Faisal to Baghdad, then, inevitably entailed
for the British consequences ruinous to their prestige. The character
of the Iraqi state which they proceeded to set up also involved them
in a difficult and unprofitable situation. Iraq was to be a kingdom
run on constitutional lines with cabinet and parliament; it was also
for the time being a British mandate. A constitution had to be agreed
and the mandatory relationship to be defined by treaty. It therefore
became necessary for a constituent assembly to be elected which
would promulgate a constitution and ratify the Anglo-Iraqi treaty.
Having by a coup de force made the Shi'ite divines leave the country
in tgz3, the British thought that all opposition to their schemes was
now ended; as Dobbs put it,'the completion of the registration of
primary electors, which had before been found impracticable, was
everywhere carried through with success, the most distant tribesmen
of the Euphrates and of the Kurdish hills enrolling themselves with
astonishing alacrity'.er This reaction by 'the most distant tribesmen
of the Euphrates and of the Kurdish hills' was perhaps a gratifying
but hardly an astonishing reaction to a show of British power. The
ensuing elections, such as they were, went smoothly and in the spring
of. r.gz4 a Constituent Assembly was in being which seemed quite
docile and amenable. This proved an illusion. A number of deputies
led by Yasin al-Hashimi organised opposition to the ratification of the
Anglo-Iraqi treaty and succeeded so well in terrorising their fellow-
deputieses that by the beginning of June the docile pro-British
265
 TIIE CHATHAM HOUSE VERSION
majority had quite evaporated. On 4 June, street demonstrations
brought the assembly to a stop. 'Ken [Cornwallis] and I,' Miss Bell
wrote that day, 'agreed that we have made a mistake. It is, we now
see, useless to ask a people entirely unversed in politics to take,
through its representatives, a vital decision as to its own future.'er
But such a mistake the British still had the power to rectify. The high
commissioner informed the king that if the treaty was not immediately
approved, the assembly would have to be dissolved the folo#ing day.
The treaty was approved. The episode may be considered the first
cou,p d.'itat to be suffered by the parliamentary system in Iraq.or
No doubt, the lesson - if they needed to learn it - was not lost on
Nuri, Yasin and their fellows. But this was not the only lesson -
superfluous as it may have been - which could be learnt, for the
British found themselves compelled not only to resort to ulti-
matums against the parliament they had called into being, but
occasionally to help in the riggrng of elections. Thus the British
officials at the ministry of the interior worked hard in the elections
of r9z8 to return a pro-government majority.06 To rig elections, to
coerce a parliament, to acguiesce in corruption: the British were
driven to such shifts by their very decision to transform Mesopo-
tamia into Iraq and to make Faisal its constitutional king. Not only
did the policy they adopted not safeguard their interests - as became
clear in r94r and afterwards - but its very carrying out ruined their
prestige and made them widely mistrusted or hated. And those for
whose sake they incurred all this, neither then nor later, were able
or willing to stand by their benefactors.
Nothing better illustrates the gap between the needs of Mesopo-
tamia and the capacity of its government under the monarchy than
the land problem of the south and the marurer in which it was tackled.
'Not less than three-fifths of cultivated, and perhaps nine-tenths of
ultimately cultivable land in lraq,' states an official British Report,00
'belongs nominally and legally to the state.' Such of this land as wrm
cultivated was occupied, sometimes communally, by tribes in various
stages of detribalisation. Their title to the land was imperfectly
defined; it had no legal sanction and there existed no land register
in which ownership was recorded and boundaries accurately deter-
mined. And there was potential divergence and conflict between the
customary norns of the tribes and the legal norms of the state. In
other words, private property, the foundation of modern constitu-
tional government and the indispensable safeguard against despotism,
266
 THE KTNGDOIT OF IRAg: A RETROSPECT

was in a fluctuating state, imperfectly established and easily

disputed. The responsibility and power of the Iraqi state in deciding
disputes and conferring legal title was enormous; and only a stable,
impartial, benevolent and far-seeing government, or, alternatively,
government so constituted as to be responsive to the legitimate
demands of all sections of the population, could successfully tackle
this vital problem. Either a Cromer or a well-articulated democracy
was required; the Faisal regime was neither. To make a satisfactory
land settlement one of two policies seemed possible. The government
could try to make use of tribal organisation which existed on the
margin o{ the state, and out of the tribal shaikhs make an independent
landed gentry, drawing their strength from tribal traditions and
practices, which would gradually create a new kind of political life
in Mesopotamia free from the centralising bureaucratic tendencies
of the Ottoman regime. This was Miss Bell's vision before she
succumbed to the charms of Faisal. 'The power of the shaikhs or
headmen,' she wrote in a wartime paper, 'was derived neither from
the sultans nor from the constitution, nor can it fall with them. It is
deeply rooted in the life of the people and with wise supervision will
form for several generations to come the staple law and order.'e?
But it is doubtful whether such a scheme would have succeeded.
Aristocracies are not made by statute: some such settlement Lord
Cornwallis had attempted in Bengal towards the end of the eighteenth
century and the result had been the creation of a class ol zamindars
who exemplified all the vices of absent and irresponsible landlordism.
There remained the other alternative, namely that the state should
accelerate the process of detribalisation, suppress the powers of the
shaikhs, and endeavour to create a small settled peasantry with
defined rights and duties which would have a visible and permanent
stake in the land. Such a policy was more consonant with the tradi-
tions of the Ottoman officials and with the aims of the Ottoman state
since the initiation of the Tanzimat. In the event neither policy was
followed. Nothing was done for the cultivator and the shaikhs
became a weapon in the hands of Baghdad politicians, to be re-
warded or punished according as they supported the winner or loser
in Baghdad.es When the British occupied the country, in order to
facilitate administration and keep control of the tribes, they promoted
some sectional heads of tribes to paramount rank. 'The remaining
sections', states the official Report for the year rg22-3,'jealous of the
position of their quondam rival and fearing, not withourt reason, that
267
 THE CHATHAM HOUSE VERSION
he might use it unfairly, united to oust him, seeking support from
any quarter which was thought to be unfriendly to him'.e e The pattern
thus established subsisted and became ever more permanent as the
years went by. The government, able through its monopoly of
modern arms to control the tribes as they had not been controlled
for centuries, made use of tribal rivalries and established, not an
independent landed aristocracy but a servile clientlle of tribal shaikhs
who were increasingly compelled to look to the politicians in Baghdad
for aggrandisement and enrichment, who in turn found them useful
weapons in the struggle for power. The Report ior rgzz-3 already
gave an inkling of what was to come. Speaking of the agrarian
problems of the Muntafiq province, it said: 'While holding to the
principle laid down by officials who have recently been in supreme
charge of the division, namely, that good citizens must be judged by
their willingness to perform their duty towards the administration,
the time is ripe for Arab statesmen to see that rights and duties are
apportioned with justice'.loo A few years later, Sir Ernest Dowson,
investigating the problems of land tenure in Iraq, noted how ad-
ministrative caprice over-rode the best-established prescriptive
rights. 'Possession,' he wrote in r93r, 'is ordinarily nine points of the
law, but neither long possession nor any other mode of acquisition
confers security. Personal influence with the most effective arbiter
is commonly the decisive factor at any moment in any particular
land dispute: and anyone may find the most convincing claims set
aside.'rol And as late as rg52 we find a law passed for the land settle-
ment of Amara which, continuing the tradition of absolute adminis-
trative discretion in matters of landed property, again vested in the
minister of finance the ultimate power to determine and assiga
ownership.ros Such a development was but taking to its ultimate
conclusion the logic of the Ottoman reforms which tried to found an
efrcient state on the model of the enlightened absolutisms of Europe,
and which ended in eliminating all local centres of influence, religious,
economic, or tribal, and in making them subordinate to the state.
And as is usual in despotism, political power became an avenue to
wealth. The ex-Ottoman officers who came with Faisal were obscure
upstarts; by the end of the monarchy they and their descendants
had become men of substance. Yasin al-Hashimi's methods to this
end, having to do with land, are an apposite instance to cite here.
When he was a minister of finance from the end of 19z6 to the
of tgz9, a law was passed providing for the distribution
beginning
268
 THE KINGDOM OF IRAQ: A RETROSPECT

of government land to persons undertaking to instal irrigation PUmPS

on them. 'Large estates', declares a dispatch from the United States
consul 'were distributed among government officials and their
fdgnds'.tos When Yasin died in tg37,he was a large landowner and
was said to have acquired sixteen estates by means of this law. When
the same Hashimi was minister of finance in 1933, he had enacted
the notorious Rights and Duties of Cultivators Act which deprived
thefettah of all rights, and made him into a serf. Under this law, the
landowner could evict the f ell,ah for any activities deemed 'harmful
to agriculture'. On the other hand, the agricultural worker was
virtually tied to the land: so long as he was in debt to the landowner,
it was laid down in the law, he could not be employed by another
landowner; and should he be dismissed or evicted, his debts were
recoverable from his personal property. This law thus transformed a
large - perhaps the largest - number of Iraqis from free persons into
mere adsuipti glebae.
The utter defencelessness of property in the face of official greed
and wilfulness appears even more clearly from the sweeping con-
fiscation of Jewish property which, barely constitutional in form,
but certainly unconstitutional in substance, was hustled through a
secret sitting of the parliament in one single day in March r95r. The
cabinet which prepared this measure - headed by Nuri al-Sa'id -
included as minister of justice one eminent jurist, Hasan Sami Tatar.
He, in common with other ministers, put his name to the law, and no
protest at this despotic subversion of what the state existed to safe-
guard was made by him, or by any other jurist or legislator. This
episode presents us with the even more lurid spectacle of the Baghdad
Chamber of Commerce - which might have been expected to act as
the defender of property - itself co-operating with government
in order to facilitate its confiscatory operations.lol In this, as in so
many other respects, the traditions established by the monarchy
were merely taken over and extended by its successors.
Baghdad reigned supreme over the country. It disposed of a Par-
liament which turned out laws at the bidding of ministers, it had an
army which, rudimentary as it was, could yet easily over-awe the
tribes with their even more primitive rifles, and its civil agents were
eveqruhere, mutasarrifs doing the bidding of the minisler, qaitnma'
qams doing the bidding of. mdasarrifs, and mud.irs doing the bidding
of. qaimmaqazzs. With its monopoly of law-making and the modern
instruments of coercion at its disposd, the state engaged in a whirl of
269
 THE CHATHAM HOUSE VERSION
legislation and administration, laying down rights and duties, and as
oil royalties came to swell its purse becoming well-nigh the universal
provider of livelihood and prosperity for the populations on whom its
rule had been imposed in the name of democracy and self-determina-
tion.
As the years went by, the state machine expanded and became top
heavy, while its control was more severely centralised. The regent,
Abd al-Ilah, was determined that his house should no more be ex-
posed to the dangers of army interference of which it had so recently
been the victim. Therefore, he who owed his positiqn to the threat of
a cowp d'itat,r06 in order to tame the army set out to pursue and punish
those ofrcers who had been ready to mutiny on his behalf but who had
subsequently mutinied against him. They were, one by one, caught
and executed. The last one was Salah al-Din al-Sabbagh, who had
taken refuge in Turkey and whom the Turks, when the issue of the
war was no longer in doubt, handed over to the British, who delivered
him up to lraq. He rvas hanged publicly at the gates of the Ministry
of Defence. This policy, which the army took to be Abd al-Ilah's
own, created fear but also great hatred for the regent, a hatred which
was at last satiated when the regent's mutilated body was in turn
hung up in the very same place where Sabbagh had been dis-
played.
Also to ensure that there would be no repetition of Rashid Ali's
attempt, the constitution was amended to give power to the king to
dismiss cabinets at his discretion. This increased enormously the
influence of the royal court and made Abd al-Ilah's will the last word
in the state. He disliked opposition and did not scruple to put down
the slightest manifestation of it. In r95o, Muzahim al-Pachachi, a
senator and ex-prime minister, complained in a speech in the Senate
that ministers nowadays were so may Teymourtaches - an allusion to
Reza Shah's slavish minister - and continued, 'We are afraid to say
the truth, which is that there is a limited number of people in fraq
who direct state afiairs according to their own wishes'. This was taken
to be an attack on the regent, and Pachachi was shortly afterwards
deprived of his seat in the senate on a technicality.roe At a meeting
of ministers and political leaders in the royal court in November
rg12 an ex-prime minister, Taha al-Hashimi, defied those present to
say that a prime minister was free to choose his colleagues; the regent
became angry and started shouting at Hashimi, denying all responsi-
bility for the distempers of the state which he put squarely on the
270
 THE KINGDOM OF IRAQ: A RETROSPECT
political leaders present. 'You are all responsible for the situation,
you are all liars', he exclaimed.roT
Such then was the state, or, to use a term applied to the Ottoman
empire but no less apt in the conditions of Iraq since r9r8, such were
the members of the state institution. From the nature and origin of
the Iraqi kingdom it is clear that they could not be men who repre-
sented the principal interests of the country, the Shi'ites, the Kurds,
the Jews, the Christians, the commercial interest or the agrarian
interest. The state institution was in fact run, to a large extent, by
members of the same official classes from whom the Ottoman state
recruited its officers and civil servants; and the first generation of
ministers, politicians and high administrators were themselves ex-
Ottoman soldiers and administrators. It was they who established the
political and administrative traditions of the new state and set the
pattern to which their successors conformed. These men were not
used to the game of politics in a constitutional state. When they had
served the Ottoman empire they had not been expected to show
initiative or accept responsibilityi they had been cogs in an ad-
ministrative and military machine required to perform as their
superiors dictated. When the crust of loyalty to the Ottoman state
broke after r9r8, they found themselves in an explosive and fluid
situation with which they were quite unable to cope. They were also
disoriented by the sudden disappearance of the authority to which
they had been so long accustomed and by the fact that Faisal and his
followers, who had rebelled a6ainst the Ottoman state, now occupied
all the highest positions in the kingdom. One gets the impression that
the senior officers in particular, who had fought until the end in the
Ottoman army and who had then been recruited into the Iraqi army,
found it easy to stage coups d,'itat and, to regard military discipline
with scant respect because they could not bring themselves to con-
sider the Iraqi army to be as real as the Ottoman army in which they
had been brought up, and because they had before their very eyes
the lucrative results which had rewarded the indiscipline of their
brother officers who had deserted to the sharif.
The men of the ruling institution who came with Faisal were the
pan-Arab doctrinaires whose programme and ambitions became the
foundation of Iraq's foreign policy. These ambitions chimed in
perfectly with the dynastic views of Faisal and his house who were
always looking beyond the frontiers of Iraq, seeking to rule over a
Greater Syria or a Fertile Crescent. Iraq's foreign policy was therefore
27r
 THE CHATHAM HOUSE VERSION
a restless quest for Prestige and position in the middle eastern
cockpit. Baghdad became a meeting ground of malcontents from
Syria and Palestine and further west; and Iraq subsidised pan-Arab
propaganda in the Arabic Press of Palestine, Syria and the Lebanon;
it ofiered refuge to men like Abd al-Azizal-Tha'ahbi, at odds with the
French in Tunisia, to Abd al-Rahman al-Shabandar, fleeing from
Syria after the r9z5 uprising, to Fawzi al-Qawuqji, the guerilla leader
from Palestine, and to the mufti of Jerusalem who was in Baghdad
from 1939 to r94r; he was voted {r8,ooo by the Iraqi Parliament,
the Iraqi government paid him {r,ooo a month from secret funds and
he received two per cent of the salaries of government employees;108
his men were everywhere, and he became a Power in the land; Iraqi
ofrcers also, with the knowledge and connivance of the Defence
minister and the chief of staff sent arms to the Palestinian guerillas
when they rose in r93fu.10e Ghazi, as had been seen, coveted Kuwait
and sought to create a following in Syria. When he died in 1939,
his cousin Abd al-Ilah was imposed as regent by Nuri al-Sa'id, then
prime minister. Abd al-Ilah was the only son of Ali, the eldest son of
Sharif Husain, who very briefly became king of the Hijaz when his
father abdicated in rgz4. After his abdication Ali had at various times
hoped to be installed by the French as king of Syria.lro The son con-
sidered himself the heir of his father's throne in the Hijaz, and up to
his appointment as regent claimed Hijazi nationality.lll Thereafter,
the Hijaz remained a focus of his ambition, to the detriment of Iraqi-
Sa'udi relations. As late as the mid-rgsos we find him still yearning
for the restoration of his house in the Hijaz and instructing the Iraqi
ambassador to Saudi Arabia to look out for Sharifian supporters in
the country.uz Abd al-Ilah's ambition also extended to Jordan and
Syria. After King Abdulla's murder in r95r he tried to prevent
Abdulla's heirs from ascending the throne so that Jordan might be
joined to Iraq.lls As for Syria, from the end of the second world war
to the day of his murder, Abd al-Ilah may be said to have been
obsessed by it. He inspired and instigated active Iraqi intervention
in Syrian politics which in its mischief and danger was paralleled only
by the policies which the Egyptians and the Sa'udis adopted in
retaliation.lu The long duel between Iraq on the one hand and Egypt
and Saudi Arabia on the other ended with a decisive defeat for Abd
al-Ilah when Eg:ypt and Syria declared a union in February 1958. On
that day, Khalil Kanna - who was a minister under the monarchy -
tells us one of Abd al-Ilah's eyes burst (infaiarat) from emotion and
272
 THE KTNGDOM OF IRA9: A RETROSPECT
vexation.u6 The obsession with Syria may even be said to have
directly occasioned the monarchy's downfall, for the Syrio-Egyptian
union led to pro-Egyptian disorders in the I-ebanon, which in turn
led the Iraqi government to send an armed force to the Syrian and
Jordanian frontier. This force, led by Qasim, took the opportunity of
its passage through Baghdad to carry out the m:$sacre of 14 July.
This dynastic and doctrinaire pan-Arabism also had its great
effects on the educational policy of the kingdom. Schools early became
seminaries for political indoctrination; men like Sati' al Husri, who
was later to sing the virtues of Nazi discipline in a public lecture in
Baghdad, were placed by Faisal in charge of the country's youth,
who were early taught how to meddle in politics. Husri's role in the
schools was crucial. This ex-Ottoman official combined the cold
centralising passion of the Ottoman bureaucracy after the Tanzimat
with a rigid and humourless pan-Arabism. This pedagogue may
literally be called the recruiting-sergeant of pan-Arab ideology, for as
he himself said in an address to the Teachers' Club in Baghdad in
1934, universal compulsory military training in Iraq (which had
been instituted that year) was the most important event to happen
in the Arab east, since compulsory education and compulsory military
training complemented each other.u8 With Faisal's support, he
early became the dominant power in the Ministry of Education in
imposing in educational matters a centralised uniformity on this
heterogeneous country and its variegated communities. As he himself
tells us inhis Memoirs,he successfully opposed schemes for opening
teachers' training colleges in Mosul and Hilla where he thought that
the majority of students would be respectively Christian and Shi'ite;
this, he feared would lead to the consolidation of a communal spirit
arnong the teachers.ll? He also opposedper capita subsidies to schools
established and run by the Jewish or Christian communities because
these proposed subsidies - which Jewish or Christian taxpayers might
claim as of right - were not conditional, and would therefore not give
him the power to impose his views and doctrines on these schoob.rrt
Husri's aim as a pedagogue was, he tells us 'to spread faith in the unity
of the Arab nation and to disseminate consciousness of its past
gloris5'.rre This was the purpose of his centralising policy, of the
curricula he devised, the appointments he made, the frequent
addresses and circulars by which he attempted to indoctrinate the
school-teachers. In his Memoirs he gives us the text of a circular he
sent to school-teachers u*ren he was director general of education
2?3
 THE CHATHAM HOUSE VERSION
in tgz5. In this circular he points out - which was in fact the case -
that people used the word 'Arab' to meanfell,aft or bedouin and that
it is associated in their minds with contempt and mockery. Teachers,
Husri lays down, must discourage such usage; they must avoid
making such a mistake and using the name of this great nation, 'in
belonging to which we ought to glory', in this vulgar manner. Teachers
have the duty 'particularly to strengthen patriotic and national
feeling', and must not use the word 'Arab'in this derogatory sense
'either in their lessons or in their conversation'.l8o Husri's doctrine
was spread in the rgzos and r93os zealously and effectively, the more
so that behind it were arrayed the resources and the power of a
state. The popularity and influence of the doctrine just before the
outbreak of the second world war was such that an Egyptian writer
could refer to 'the extreme "Husrism" ial,-husriyya) which we see
rampant in Iraq'. This writer went on to describe the doctrine and its
implications:
We mean by'Husrism' pe wrote[ the feeling that to labour for the sake
of Arabism requires the adoption of an inimical stance towards non-Arab
elements whether these elements are found within the Arab environment
or outside it. This Husrism which we have seen in Iraq weakens the
Iraqi entity itself since it looks upon the Kurds with some hatred, and
does not desire closer relations with the Iranians or other Muslims who
neighbour the territories of the Arabic-speaking peoples. .. , And this
cannot but create problems for the Arab front.lrr
lnhis Memoirs Husri also gives details of a history syllabus which
he composed for primary schools. The main purpose of the teaching
of history in primary schools, he begins by t"ytt g, is to impart know-
ledge of the history of the fatherland and of the nation's past, the
aim being to strengthen patriotic and nationalist feeling (al-shu'ur
al-watani wa'l qawmi) in the pupil's heart. The syllabus culminated in
a study of : Italian unity (Cavour and Garibaldi), and German unity,
the Hohenzollerns, Bismarck.rtt The purpose of such a curriculum is
transparent: Italian unity and German unity were the andogues and
prefigurations of the coming Arab unity. Tantawi, a Damascene
school-teacher, one of the numerous Syrians and Palestinians whom
the Ministry of Education began to import in the rgzos in order to
preach pan-Arabism to the less sophisticated lraqis, tells us that one
of the most fervent wishes of the secondary schoolboys whom he
taught in Baghdad in the r93os, while reading the story of Italian
unity and German unity, was that Iraq should become a Piedmont
274
 THE KINGDOM OF IRAQ: A RETROSPECT

or a Prussia and 'thus realise unity with both hands, the hand of the
people with its emotions and desires, and the hand of the govern-
ment with its policy and its weapons'.rl8
The corollary of this indoctrination was that the schools became -
and were encouraged to become - political seminaries. Thus those
responsible for the riots against the Shi'as rn tgz7, when the pro-
Umayyad book was published, were treated leniently:
The punishments inflicted by the Ministry fthe official British Report
informs us] were eventually all remitted, even to the extent of recalling
three Syrian teachers who were dismissed lor publishing in the news-
papers a gross insult both to the minister of Education who was a Shi'a,
and to the government. . . . The incident and its sequel [the Report
continued] are ominous. Political and religious agitators have learnt
thereby that schools can be stirred up, even on the most childish pretexts,
into action which may well result in a breach of the peace. The Ministry
of Education must apparently reconcile itself to the fact that in a crisis
it cannot trust either the commonsense or the loyalty of teachers.lt{
Similar incitlents with similar consequences occurred in r9z8 when
Sir Alfred Mond visited Baghdad. Then, an anti-Zionist riot took
place of which the nucleus was formed by students of the Teachers'
Training college and of secondary schools. 'In meting out punish-
ment for this breach of discipline and good order', observed the
British Report, 'the authorities perhaps erred on the side of leniency'.
It would seem that we may date from this incident the first organisa-
tion in Iraq of political extremism which drew its strength from the
It was then that
schools and colleges as well as from the army omcers.
a number of young men, including Sab'awi, Fa'iq al-Samarra'i,
Husain Jamil, Abd al-padir Isma'il, Aziz Sharif and Khalil Kanna,
got together in order to organise demonstrations against the mandate
and against Zionism in Palestine.lts The situation became much more
serious in the r93os when the attractions of the Hitler Youth and the
activities of the Nazi propagandists in Iraq combined to create in
students and teachers a heady nationalist intoxication which reached
its paroxism in the Rashid Ali movement. But it is not merely the
case that student extremism was the indirect corollary of the politici-
sation of schools and curricula. On occasion the government itself
directly encouraged students to demonstrate and riot. Thus Tantawi
tells us that when Ghazi was pursuing an active pan-Arab policy,
one morning he and his fellow teachers were assembled by the principal
of the Central Secondary School and secretly informed that the
275
 THE CHATHAM HOUSE VERSION
government desired a demonstration against French rule in Syria
and that the teachers were to organise it. A teacher was detailed to
each of the ten secondary schools in the capital and made responsible
for bringing the students out.120 When the British occupied Iraq in
r94r they had to instal their own men in the ministry of education
and attempt - of course, in vain - to clean it out. The regent himself,
in a speech from the throne delivered in r94r, recognised that educa-
tion in Iraq had been exploited for political purposes and that the
youth had been perverted and led astray.lr? But it was the state
itself which had been responsible for perverting and leading the
younger generations astray. At the time of the Suez affair the well-
known ideologue Abd al-Rahmat a)-Bazzaz - himself a product of
the regime - was the dean of the Law College and he was taken to
task by Nuri al-Sa'id's government for not curbing student demon-
strations in favour of E6ypt; his answer to a police ofrcial investigat-
ing student activities against Nuri and the Hashemite regime has in
it something of poetic justice. 'How', Bazzaz asked, 'can I oppose
student strikes in favour of national issues concerning which I entirely
share their feelings?' 'Any attempt to prevent students from expres-
sing their sincere and well-behaved fmuhadhd.haDal feelings in this
respect', he afrrmed, 'is vain. It only Proves how ignorant the
authorities are of the spirit of the age and of the public feelings
cument in student circles.'rst
The culmination of Iraq's pan-Arab policy came in the middle of
the second world war when Nuri al Sa'id, then prime minister, suc-
ceeded with British encouragement and support in setting up, with
Egypt as principal partner, the Arab League. This enterprise proved
a source of endless troubles and intrigues between Egypt and Iraq
who sought, each of them, to establish their sole dominance over the
other Arab states. In pan-Arab intrigues and combinations were lost
not only the Palestine Arabs, but the British position in the middle
east as well. We may therefore say that for Britain, which became
involved in a pan-Arab policy as a result of his pressure and per-
suasion, Nuri was one of those friends from whom one prays to be
protected.
The Sharifian officers whom Faisal brought with him were, of
course, too few to govern the country on their own. As has been seen,
they had to share power with the ex-Ottoman officials, who had
neither taken part in the sharif's rebellion nor had desired secession
from the Ottoman state. For these ofrcials, who had themselves
276
 THE KINGDOM OF IRAg: A RETROSPECT
formed part of the state, the condition of Iraq after r9r8 was most
unsatisfactory. Once they had helped to rule a state which was the
one Muslim Great Power in the world, now they were confined to a
petty kingdom which a Christian power occupied and controlled.
This power had, furthermore, brought in a number of obscure men
and put them in positions of authority; and these men were claiming
that they were the only genuine Arab nationalists, that their uprising
had inaugurated a new Arab renaissance, when in fact they had
merely been accessories to the humiliation of Islam. The sardonic
bitterness of these official classes, without whom Iraq could not be
governed, knew no bounds. The clients of the British, Arab national-
ists? They would show them who were the true nationalists. When
Nuri al-Sa'id negotiated a treaty with Britain in r93r, his opponents
set up a great agitation, claiming that the treaty did not give Iraq
true independence but was merely a diabolic device to subject the
country more firmly than ever to British control. In the controversies
which ensued, the supporters of Nuri and Ja'far al 'Askari taunted
Yasin al-Hashimi, who was opposed to the treaty, with having done
nothing for Arab nationalism: he had not abandoned the Ottomans
in mid-war as the Sharifian officers had done, but had fought by their
side until the end, and had only changed sides when Faisal was
already in Damascus. One of Yasin's partisans, Fahmi al-Mudarris,
was moved to reply in these terms:
It is not wise [he wrote] to blame His Excellency al-Hashimi for having
stood firm with the Ottoman army until the last shot had been fired; for
his behaviour can be justified on two counts. In the first place, he had the
duty, as a faithful commander, to preserve the army and his own honour;
in the second, he believed that the destruction of the Turkish army would
lead the Arabs to be delivered over and to submit to the Allies who would
divide up their country into zones of influence, which is in fact what
happened. . . . Seeing what it means to keep faith, and what military
regulations are, had al-Hashimi abandoned the Turks he would have
included himself in the category of traitors.

Again, how dare Faisal and his family claim to be the leaders of the
Arabs, and to have saved them from Ottoman despotism? In Ottoman
times people were not used to hear of titles such as King of the
Hijaz - a title which the Sharif Faisal's father had taken to himself ;
on the contrary, the proudest title of the Ottoman sultan on the
ruins of whose empire Iraq and so many other countries were built,
exclaimed al-Mudarris, was that of. Khad.im al-haramain al-skarifain,
277
 THE CHATHAM HOUSE VERSION
the Servant of the Two Holy Places (of Mecca and Medina); the
highest rank in which the sultans gloried was that of Sweepers of the
Holy Places; did they not use the broom as a symbol of their rule?
Al-Mudarris has a passage in which he expresses to perfection an
attitude which is encountered again and again among the official
classes of Iraq whose Ottoman careiers had been ended by the British
Occupation:
Iraq fal-Mudarris wrote] never was a Turkish colony; it was part of
the Ottoman empire which had been independent and autonomous for
more than six centuries. Neither was the state Turkish, but Ottoman.
This meant that it gathered under its banner difierent races in the same
manner as the Iraqi state u'ould today, had it been independent. The
Iraqis were not under the yoke of Turkish rule, as they are today under
the yoke of the British mandate. They shared, rather, in the rule together
with the Turks and the other races, in all the departments of the state:
there was no discrimination in rights or duties between the Turks and the
Iraqis; and they shared ofrces, high positions, and the good and the bad
equally. The Iraqi exercised rule, justice, administration and politics for
succeeding centuries, not only in Iraq, but in all parts of the Ottoman
empire, which extended to Europe, Asia and Africa.r89

From the very foundation, then, of the Iraqi kingdom, there was
this nagging feeling that it was a make-believe kingdom, built on
false pretences and kept going by a British design and for a British
purpose. This is the origin and explanation of the rabid anti-British
feelings of large sections of the ruling classes of Iraq, a feeling which
persisted until the end, and which occasionally exploded in bursts of
hatred and violence. The British indeed had few friends in the king-
dom they founded. The king and the Sharifian ofrcers who came
with him did not dare show gratitude to their patrons, but must always
be pressing them for further concessions to make secure their own
position and prestige; the Shi'ites and the Kurds felt that they had
been betrayed for no good reasons; and further, why should anybody
befriend the British when they themselves were so unreliable? Did
not the Sharifians, operating from Syria, raise a sedition against them
in Iraq, and were they not royally rewarded for their behaviour?
Further, though the British had imposed Faisal on Mesopotamia,
yet in their public professions they kept on insisting that they had
brought him to rule Iraq in response to popular demand, so that they
could not even exploit the prestige which comes to governments when
they successfully assert their views and impose their authority. As
278
 THE KINGDOM OF IRAB: A RETROSPECT

for the non-Muslim minorities, delivered as they were to the Baghdad

government, was not the spectacle of the Assyrians enough to frighten
them ofi? The institutions of the mandate, again, were calculated to
arouse suspicion in the minds of the Muslim politicians and ad-
ministrators. Their blunt, uncomplicated minds saw in politics
nothing but the exercise of power, and when they found themselves
flanked by British advisers who were supposed to guide their steps
and instruct them in League-of-Nations virtues, they were convinced
that this was but an underhand manner of undermining their autho-
rity and diminishing their power; they were also indignant that
Christians and foreigners should presume to teach them, who had
ruled the country in Ottoman times, how to govern'
Such was the kingdom which met its doom on the fourteenth of
July of Abd al-Karim al-Qasim. While the going was good, rulers of
Iraq drank from it to satiety as from a bowl of soup, or else used it as
a pawn in their dreadful game. The politicians intrigued with the
tribes, as in the Euphrates uprisings of the mid-r93os when Yasin
al-Hashmi, Hikmat Sulaiman and Rashid Ali al-Gailani secretly
suborned tribal chiefs and touched off a long period of tribal unrest, or
again they debauched the army officers and incited them to mutinies,
as when Hikmat conspired with Bakr Sidqi, or when Nuri al-Sa'id
with those whom he was later to execute for their rebellion in r94r.
The world was shocked at Nuri's end, at the demonic hatred which
his enemies manifested for him. For Nuri had come to seem in the
second world war and after the supreme master of Iraqi politics,
strong, adroit and straightforward. But Nuri, it must not be for-
gotten, was, before his ascent to this respectable eminence, but one
of the many politicians in Baghdad scrabbling and plotting for power.
'In the early days of the kingdom,' Mr de Gaury tells us, 'as an
extreme Arab nationalist, he went through a picaresque period,
when he was guarded day and night by a selected gang of toughs,
some in the uniform of the Iraqi military police;'rso'... except for
Col. Joyce, Capt Clayton and me,' writes Miss Bell in a letter of 8
August rg22,'everyone holds Nuri to be an imp of mischief.' As for
herself, she confessed that 'of all the people from the king down-
wards, there is no one I really love as I love Nuri'. It is she who
presents the bizarre spectacle of Nuri, during the tumultuous debates
in the constituent assembly on the Anglo-Iraqi treaty of. t924,
going about with a bomb in his pocket designed to encourage sup-
porters of the treaty and no doubt discourage its enemies.rtl In
279
 THE CHATHAM HOUSE VERSION
February tgz4,Taufiqal-Khalidi, a senator, ex-governor of Baghdad
and ex-minister of the interior and of justice, was murdered in the
street in Baghdad. He had been suspected of republican, perhaps
Turkish sympathies, and his murderers were never caught. They are
now identified for us as Abdullah Sariyya and Shakir al-Qaraghuli,
clients of Nuri and his brother-in-law Ja'far al-Askari.lge It is
commonly accepted that the instigators were either or both, and that
the aim was to terrorise Faisal's opponents. But this champion of the
Sharifian house was also capable of making overtures to its Sa'udi
enemy. After Bakr Sidqi's coup d'Ctat, while in exile in Cairo in 1937,
as has been seen, he seemed to have offered his services to Ibn Sa'ud
to secure for a son of his the Iraqi throne. And this steadfast upholder
of the British connection was prudent enough to keep a line open to
the Axis. In September r94o we see him instructing the Iraqi minister
in Ankara 'to seize every opportunity' to get in touch with Axis
representatives, 'directly or indirectly', to exhort them to persuade
their governments of the utility and necessity of proclaiming their
support for the independence of Syria, Palestine and other Arab
countries, and to instigate Syrians who might be in touch with the
minister themselves to make these approaches and even to visit the
Axis capitals.rss Men who after r94r were condemned as Nazi agents
had earlier been his friends and coadjutors. The coup d,'Ctat which he
engineered in 1938 succeeded with the help of, among others, the
four colonels known as the Golden Square, whom he later executed
for their part in the Rashid .!rb coup. Rashid had been exiled from
Baghdad by the cabinet of Jamil al-Midfa'i, and when Nuri became
prime minister he recalled him and appointed him head of the royal
cabinet. Salah al-Din al-Sabbagh, one of the colonels executed in
consequence of Rashid Ali's movement, was surely justified in saying
that it was Nuri - among other politicians - who encouraged the
soldiers to assume control over successive Ministries.rsa Apart from
promoting military disafiection, Nuri helped further to debauch the
public institutions of the state. It was he who, when he became prime
minister in r93o, for the first time in the history of the kingdom
enacted a law which enabled ministers to dismiss civil servants
arbitrarily and at their discretion;r3r 11 may be imagined to what use
such a weapon was put by successive Iraqi governments. Again, it
was during his Ministry that the Futuwwa, a semi-military formation
of schoolboys modelled on Nazi and Fascist patterns, was formed in
1939; also it was he who gave ministerial office in r94o to Sami
z8o
 THE KINGDOM OF IRAQ: A RETROSPECT

Shawkat, one of the high officials of the Ministry of Education most

responsible for introducing political fanaticism in the state schools.186
Again, seeking to avenge the murder of his brother-in-law, Ja'far
al-'Askari, he arrested Hikmat Sulaiman and an oftcer suspected of
having taken part in the murder, tried them on a trumped-up charge
of conspiracy against the state, and had them condemned to death;
the British ambassador intervened to prevent the death sentences
being carried out.r8? The British occupation of the country in r94r
enabled him to discredit his enemies, weaken his rivals, and reign
supreme for nearly two decades, presenting to the world the picture
of an old statesman full of wisdom and uprightness, dedicated to
progress and reform. This is not at all how the matter looked to his
opponents, who considered him a cunning and dangerous enemy,
an autocrat in power and an intriguer out of it; and his very skill in
manipulating porver, unmatched by any other politicians of his day
in Iraq, served but to increase the hate and envy to which, in the
end, he fell victim. For this man who rose from obscure beginnings
to such a position of power exemplifies perfectly Machiavelli's man of
uirtil. Fate presented him with two golden opportunities, which he
dared to grasp stoutly and to exploit fully, once when he deserted
from the Ottoman army and threw in his lot with the sharif, and
again when he ranged himself by the side of Britain in r94r. His
bloody end was a fitting conclusion to a life lived dangerously. He
was caught in a Baghdad street disguised as a woman and killed on
the spot. His body was reduced immediately to a pulp by the wheels
of innumerable motor-cars joyously driven over it. Is this horrible
death the fated re-enactment of a rite which Baghdad's sombre and
unappeasable genius seems now and again to exact? It is, in any case,
the uncanny echo of another such death which took place in 1763.
In that year also the Janissaries rose against the vali; he also tried to
flee disguised as a woman, was recognised at one of the city's gates,
and immediately executed.l88
Over a century ago, an unknown citizen of Baghdad kept a diary in
which he recorded, with a sceptical and jaundiced pen, the misdeeds,
the peculations, the intrigues and the murders of the rulers of his
day. In this grisly spectacle, which seems to repeat itself in Baghdad
every decade and every century - and to have seen which is itself a
kind of bruised and forlorn glory - one actor who had his brief
moment of power, may stand as a s5rmbol for the rulers of this
wretched country. This man who flourished when Ali Riza al'Laz
z8t
 THE CHATHAM HOUSE VERSION
was vali from r83r to r842. started as a small clerk in a village,
al-Khalis, and grew to become one of the most powerful men in
Baghdad. His greed and cruelty, says the chronicler, knew no bounds,
to retail them would fill many volumes, and the compiler would be
accused of lying and exaggeration; the notables of Baghdad, :unong
whom were numerous men of learning and piety, were terrifred of
him and did not dare complain to the vdi. Yet who, but for this
chronicler, would have remembered this terrible man? The diarist
knew him as Mulla Ali d-Khasi, Mulla Ali the Eunuch, and adds
that it wali not even known whether he was a eunuch or not.180 Of
his circumstances we know nothing, neither his father's name nor
his mother's, whence he came or whither he went; only this, that he
had power for twelve years and then fell. It is a consoling thought
that perhaps today, in circumstances no less sombre than those of
previous centuries, there may still be in Baghdad a private person,
uncomrpted by ministers of guidance and ministers of education,
to chronicle in secret with an unlettered and literal pen, the doings
of the Mulla Alis of his day.

z$z
Appendix

A Shi'ite Prochmation

THE VOICE OF IRA0

pRocLAMATroN By rHE ExBcurIvB coMMtrrEE oF TI{E sHrAI{s tx tnagl
The greater portion of Iraq is inhabited by the Shia sect of Islam which
represents 7o Wr cent of the total population according to the census
made by both the British government and the government of Iraq.
Throughout the world the majority rules if the government is a national
government. It is of course otherwise in exceptional cases, i.e., during
the occupation of a country or during a time when the status of the
country is not in its usual form.
For more than ten years since the formation of the government of
Iraq the administration of the country has been in the hands of a certain
faction of the population. This faction is sharing among itself the revenues
and benefits of the country and is depriving us of our share although
foreign powers consider us as rePresenting the majority of people. We
have lived in this country for centuries and so did our forefathers, and
to our regret we possess practically nothing, having been deprived of
our lands. This faction has appointed savages from the desert who are
handling us as they wish. Intrigues have always been their object and
that is how they have been able to hold the administration of the country
in their own hands,
We have been very badly treated and our position at the present time
is worse than it was during the Turkish regime. We are tired of this sort
of life. Our endowments have been taken away, our lands confiscated.
our trade depressed, and even our cemeteries have come under their
control. Furthermore, our lives are threatened and the districts where the
majority of the population is Shiah have been altogether neglected. These
districts have been deprived of proper educational advantages, of efficient
health service and are left undeveloped. However, they do not fail to
look after the sections of the country inhabited by their sect and make
their improvements by means of taxes collected from us. If one compares
the number of schools in the northern district with the number in the
southern district he rryill find a difierence existing between these two
sections. It is the same with sanitation, development, commerce, ct cetcla,
If we ever ask that state domain lands be grauted us for cultivation our
request is not acceded to; however, such lands have been distributed to
r Enclosure witb dispatcb from Sloan, Baghdad, rr February $3ziEgog.ooh7g
283
 THE CHATHAM HOUSE VERSION
their effendis and officials in order that they may obtain the majority
during parliamentary elections. Since the House of Parliament has been
formed we have never heard of the Shiah Moslems having been elected
from the northern district. Whereas from our districts only one or two are
elected and the rest are from the other faction. Similar instances are
many. Among the cabinet members only one is a Shiah and even this
member is not actually a minister, only a diplomatic attach6 with no
influence, A Shiah has never been given the portfolio of minister of the
Interior or other such important post. He has always been assigned to
the post of minister of Education and this portfolio carries little, if any,
power or prestige,
We have been imprisoned without cause. \[e have been deported
without reason. Our chief and prominent men have been ofiended without
justification. Many taxes have been collected from us and we are rendered
so poor that it seems to us that we were better treated during the old
regime. They blame the British policy in order to camouflage their evil
desire, They enact legislation to our hurt, their object being to deprive
us of our freedom and our legal rights. Among us they have even deported
ot:r ulonras and by stirring up religious dissensions have put into practice
the policy of divide and rule. They hawe created all kinds of enmities and
feuds between the shaikhs of our tribes in their distribution of land,
taking from one and giving to the other. Their teachers imbue the students
with all Hnds of religious beliefs. Such action has rendered us very
suspicious as to their object. If we should go through every page of their
history, such as the unfortunate events which have taken place at Kerbela,
Kadhimain and Najaf, or other holy places, it would take large volumes
to record them. The Shiahs have very few men in the different govern-
ment posts. The number of officials we have does not exceed the number of
f,ngers on one hand. This small number is bound by all kinds of fetters
and is always threatened. They have no high posts and have no per-
manent jobs in spite of the intelligence and efficiency they possess to
hold government positions. It is to our regret that the Shiah officials are
treated as though they were not sons of the country and as if they had no
right to claim any part in the administration of the government. We have
never before experienced such treatment not even during the dark ages.
They want to milk us.
They are beneflting from the taxes collected from us. We do the hard
labour and they reap the harvest. They spend lavishly for their personal
ambitions and were it not for these heavy expenses our Shiah com-
munities would not be so heavily taxed. Their ofrcials are very highly
paid. The wages they receive are higher than those of any other civilised
and rich country. In addition to this they misappropriate funds from
the national treasury. They have enacted a pension law to ensure for
themselves a perpetual income and the Shiahs were deprived of this.
284
 APPENDIX
One-third of the revenue of the state is distributed among this faction
and each one has become wealthy.
Now that the tide has reached its peak, that the fate of Iraq is de-
pendent upon the League of Nations, our case has become a vital point
which can not be neglected any longer in view of the fact that it has
reference to our interests, our living, and our future; and in order to give
protection to our lives, our properties, and our honour and to further
protect us from being attacked by their evil deliberations we have sum-
marised our demands as follows:
r. The Shiah sect shall take charge of the administration of the country
and the other sects will have the posts and power to which their
numbers entitle them.
z. The revenues of Moslem awqofs shall be distributed equally among all
the religious Moslem institutions in the holy places and elsewhere and
the past owqaf accounts shall be audited.
3. Government jobs should be given to Shiahs in numbers proportionate
to their population in the state.
4. Likewise Shiah farmers shall be granted lands from the public
domain in proportion to their population in the state.
5. Roads in the Shiah districts shall be repaired and an efficient health
service established there.
6. Roads in the different Shiah liwas s}rall be constructed, and more
attention shall be paid to the education of Shiahs.
7. The majority of educational missions sent abroad each year shall be
composed of Shiahs.
8. Every person shall have complete freedom to express his views.
Rights usurped shall be given back, whether in lands or otherwise
and shall be protected from future transgressions.
9. A general plebiscite shall be held under the supervision of the League
of Nations and without interference from the present administrative
officials, to vote on these demands.
Our demands are the aspiration of every Shiah who lives in this country
and enjoyed prosperity before this era. In the name of justice and inter-
national right we ask the British government which has the mandate to
consider our demands lest the tear is made larger and lest the occurrence
of rgzo [the revolution] upon which this government was constructed
and from the results of which we hoped to gain our freedom, be repeated
in a more dreadful manner as the next revolution will be of larger scope.
We await the decision of Great Britain in this matter. In its capacity
as the mandatory power it should take effective measures and relieve us
from the disgraceful rule of this faction and the religious fanaticism it
exerts to satisfy its personal ambitions before the situation leads to more
serious and deplorable results and before the country is given up to
anarchy.
285
IO

'Minorities'
We had fed the heart on fantasies
The heart's grown brutal from the fare
w. B. yEArs, Meilitotions in Tirp of Ciail War

It is the common fashion today to denounce the imperialism of

western powers in Asia and Africa. Charges of economic exploitation
are made and the tyranny and arrogance of the European are
arraigned. Yet it is a simple and obvious fact that these areas which
are said to suffer from imperialism today have known nothing but
alien rule throughout most of their history and that, until the coming
of the western poweni, their experience of government was the
insolence and greed of unchecked arbitrary rule. It is not on these
grounds, therefore, that the appearance of the west in Asia and
Africa is to be deplored. A curse the west has indeed brought to the
east, but - and here lies the tragedy - not intentionally; indeed the
curse was considered - and still is by many - a precious boon, the
most precious that the west could confer on the east in expiation of
its supposed sins; and the curse itself is as potent in its maleficence
in the west as it is in the east. A rash, a malady, an infection spreading
from western Europe through the Balkans, the Ottoman empire,
India, the far east and Africa, eating up the fabric of settled society
to leave it weakened and defenceless before ignorant and unscru-
pulous adventurers, for further horror and atrocity: such are the
terms to describe what the west has done to the rest of the world,
not wilfully, not knowingly, but mostly out of excellent intentions
and by example of its prestige and prosperity. At the stage where we
are it becomes possible to follow, in certain cases, the course of the
malady, to trace the first treacherous symptoms and link them
through a long agony to the last spasm of resistance, to recount the
complications, the attempted remedies and to record the final
286
 'MINoBITIEs'
irrevocable relapses. And of the decomposing matter that is left
what shall we say? That those who are sanguine enough may hope
that out of it, one day, the tissue of a living society will, once more,
grow.

Of these cases the purest, perhaps the most classical, are to be found
in the communities which not so long ago constituted the Ottoman
empire. And the most Pitiful among them is perhaps that of the
Armenian community. The Armenians are a very ancient people
whose history, owing to their geographical position, has at all times
been grim and difficult; the history of a small group bruised and
crushed in the eternal rivalry and contention of powerful empires.
with the advent of the ottoman supremacythe Armenian community,
like the other religious groups in the ottoman territory, was estab-
lished with a certain me.xiure of internal self-government, and its
members took their place in the delicate balance of ottoman society.
Such was still the situation at the beginning of the nineteenth century,
when the west suddenly impinged on the Ottoman dominions, setting
the Armenians and the other elements of this eastern society new
problems and dangling before them new temptations, with which
iheir experience had hardly taught them how to deal. It is to be
observed that these problems and temptations were, at the outset,
not political, and that the challenge would not have been so serious
had they been merely political. For with politics the Armenians were
well acquainted, and how to protect themselves in the clash of Great
powers was something not alien to their tradition. The problem and
the temptation was not that of western political ambitions but that of
western philosoPhY.
The riligion of the Armenians was their distinctive badge in an
Ottoman society regulated and governed according to denomina-
tional distinctions. This religion was not only a matter for the indi-
vidual conscience, for personal and private devotions; it was a rule of
life regulating all social activities and all relations with the suzerain
power-, itself suzerain by virtue of professing the dominant religion.
And the internal government of the community was similarly the
prerogative of the religious hierarchy, which drew its civil Power
from the fact of its ecclesiastical authority.
Into these long-standing and well-understood arrangements the
west, round about r83o, suddenly intruded. It came in the shape of
American Protestant missionaries. They arrived with arguments and
z$z
 THE CHATHAM IIOUSE VERSION
tracts and funds. Their purpose, they said, was to infuse vitality and
spirit into the unprogressive and dormant eastern Christian com-
munities. They proceeded to make converts and to propagate their
tenets by founding schools on the Lancastrian system. The established
hierarchy resisted these encroachments. It exiled and imprisoned
Armenian converts to Protestantism. It approached the Ottoman
Government with a request to forbid the activities of these mission-
aries. In 1839, Hagopos, the patriarch adjunct, issued a bull forbid-
ding the reading of all books printed or circulated by them.r The
objections of the hierarchy to missionary activity were deep-seated
and violent, but they were not very articulate. Dwight, the chronicler
of the missionaries, gives an indication of these objections: ,The
words Framason (Freemason)', he says, 'Lutran (Lutheran), Volter
(voltaire) and Protestan (Protestant) were freely and indiscriminately
applied to us, all of them being considered by the common people as
sJrnon5/rns, and the meaning being rather indefinite, but yet implying
an atheist of the most wicked and dangerous description,.t Horatio
Southgate, an American Episcopalian bishop and a traveller in the
east, shared, it seemed, these prejudices; in an English religious
periodical he described the converts as 'infidels and radicals,.s And
nearly half a century later, at the beginning of the Armenian troubles,
the Ottoman government also gave expression to the same view. In
1894, it issued instructions affecting the free attendance of Armenian
children at American schools. 'As far as I have been able to learn,,
wrote Consul Cumberbatch from Angora to Sir Philip Currie at
Constantinopler on 5 October 1894, 'these new measures are to the
efrect that Armenian parents must become sureties for their children,s
conduct as loyal subjects both during and after their attendance at
American schools.'. What actually were the doctrines that the
missionaries, arousing so much opposition and anger from so many
difierent quarters, were teaching? Dwight defines them for us: .The
standard doctrine of the Reformation - salvation by grace alone,
without the deeds of the law - was usually the great central truth,
first apprehended by their awakened and inquiring minds, and made
the ground of satisfactory repose.'6 The 'standard doctrine of the
Reformation' had meant in Europe, its native breeding ground, a
great and prolonged upheaval. And it would be surprising if its
sudden introduction into a society totally unprepared for it were not
to result in even greater upheavals and in dislocations even more
fundamental.
288
 .MINORITIES,

Salvation by grace alone, without the deeds of the law: the implica-
tions <lf the doctrine are as exhilarating as they are dangerous. As a
principle governing the religious life, its application is limited and its
practice exacting. It cannot, obviously, offer guidance to the majority
of those who profess any creed; it demands a severe mystical discipline
of which only a few, after long preparation, are capable. Even then
the pitfalls are so numerous and so subtle that there is a mere hair's
breadth, on this particular path, between salvation and damnation'
It seems then inevitable that the general introduction of such a
doctrine into a society should act as a solvent of the long-standing
restraints which more pedestrian rules had enjoined. This, if only
because the doctrine presupposes the independence of individual
judgment and the primacy of individual will. Nor is this the end of the
matler. The individual is set free, and his judgment is declared,
under God, supreme. Suppose then the individual takes a further
step and affirms that he is indeed free and that his judgment is,
without any qualification, supreme. The inevitable happens: Secular-
ism and Protestantism merge into one another; and the doctrine of
salvation by grace, which was a means of attaining the Life Eternal,
becomes an alluring instrument for the building of Heaven on Earth;
Nationalism is begotten. Thus a later American missionary, in his
horror at the Armenian massacres of 1895 and at the responsibility
of Armenians for them, tries to explain the situation to himself by
ascribing the disaster to those Armenians who 'having imbibed the
free thought ideas developed in the French Revolution, and fired by
the experience of 1848, were utterly impatient of the slower process
of education,.o He is right, but he does not consider that there is a
path which may lead from salvation by grace to 'the free thought
ideas developed in the French Revolution'.
The introduction of these ideas, then, could not fail to affect the
internal afiairs of the Armenian community, as well as its relations
with the Ottoman Power. To start with, a schism, encouraged by the
missionaries,? took place between the Orthodox majority and the
converts to Protestantism, and a new Protestant Armenian com-
munity was formed. Then, within the orthodox community itself,
partiei of 'Enlightened' and 'Reactionaries' were formed' A{ter a
*hil", th. 'Enlightened', as is proper, won and reorganised the
government oI the Armenian community. Extensive Powers were
iaken away from the ecclesiastical hierarchy and vested in a new
elective Communal Council of Deputies' In 186o, the Ottoman
289
 THE CHATHAM HOUSE VERSION
government, which was then looking on reforms in general with a
benevolent eye, gave its approval.s The Ottoman governnrent no
doubt thought that reform of the millets went hand in trand with
reform of the army and the administration, and like the latter would
strengthen the state. This, of course, did not prove to be exactly true
of. the Tanzimat, and, proved to be even less true of millet reforms.
By their very nature the reforms favoured the ,Enlightened, and
weakened the ecclesiastics and the old-fashioned notables who had
between them for so long governed these communities. The ,En-
lightened' were men who read books and believed what they found
in them; they were prone to be impatient, querulous, and ready at
whatever cost to'pursue their principles' wherever they led. And their
'principles' necessarily led them much farther than the Ottoman
patrons of reform had imagined. If rebellion against the hierarchy
was to be proclaimed, then, logically, rebellion against the master of
the hierarchy, the Ottoman state, had also to be proclaimed. In
t87z an Armenian was writing in a new patriotic paper in Tiflis:
'Yesterday, we were an ecclesiastical community; tomorrow, we shall
be a nation of workers and thinkers.'0
How then should the Armenians become a nation? Till now, what
distinguished them from others were a religion and a language; they
had no cohesion, no sense of political unity and they were geogra-
phically scattered. There were important groups of them in eastern
Anatolia, in Cilicia and in the Russian Caucasus. These were the
principal troups, but there were others, not negligible, scattered
across the length and breadth of the Ottoman empire. Nowhere were
they in a decisive majority; the Kurds, in Anatolia, notably, were an
important and uncontrollable element of the population. More
important still, the Armenian community was intimately inter-
twined with the other elements of Ottoman society. And in any case,
they had no classes accustomed to the exercise and responsibility of
power, and the population at large was not likely, in any forseeable
future, to become a body of independent and knowledgeable citizenry,
which is the first requisite in a 'nation'. Such were the internal
difficulties. There were external ones, no less formidable. Was, for
instance, the Ottoman state to acquiesce in another amputation of its
dominions? And if, per im.possibil,e, it did acquiesce, what would
Russia have to say to a small irredentist nation on a sensitive and
difrcult border area?1o And if Russia favoured the Armenians, would
not this make the resistance of the Ottomans even more implacable?
290
 .MINORITIES,

And what would be the attitude of the other Great Powers to this
further complication of the eastern question?u But this was to talk
sweet reasonableness to men exalted with the promise of salvation.
And those among the Armenians who ventured to speak this language
were murdered for their pains.
The thing, then, was to act. The obvious plan was to get, first of all,
the support of a Great Power, like all the other nationalities which
had seceded from the Ottoman state. Great Britain was then unlikely
to encourage projects tending to the disruption of the Ottoman empire.
There remained Russia, with whom the Armenians had many con-
nections and which ruled over an important section of the Caucasus.
Russia might be prepared to listen and to extend a benevolent support
to the Armenian cause in the interest of her own Ottoman policy; but
Russia, on the other hand, would dways have reasons to discourage
an Armenian national movement, and presumably the Armenian
leaders reasoned that they would cross this bridge when they came
to it.lt The opportunity soon catne in the crisis of t877. The victorious
Russians at the gates of Constantinople were dictating the Peace of
San Stefano. The Armenians approached the British and the Russians
to ask their support for a scheme of an autonomous Armenia under a
Christian governor. Before and immediately after the Congress of
Berlin, encouraged by the Bulgarian example, Armenian notables
approached the British Embassy to demand autonomy for an Armenia
which was to include the provinces of Van and Sivas, the greater part
of the province of Diarbekir, and the territoriescomprisingthe ancient
Armenian kingdom of Cilicia.ls But at the Congress of Berlin'auto-
nomy' was whittled down to'reforms and improvements' which the
Great Powers, and especially Great Britain, pledged themselves to see
accomplished. From that date autonomy became an obsession with
the Armenian leaders. It constituted at once the maximum and the
minimum of their demands. The minimum since it was doubtless
argued that once autonomy under a Christian governor was gained,
the rest would come easily, as they had only to look at Rumania and
Bulgaria to realise; the maximum: since they argued that 'they would
get in proportion as they asked; hence they asked for the greatest
that could be given with the expectation . . ' of securing not that but
something less which should be, after all, a great advance . . .'.1a
Thirty-five years later, in r9r3, after the massacres and the disasters
and the setbacks, under a more centralising and even more intran-
sigent Young Turk government they were still asking for autonomy'
29r
 THE CHATHAM HOUSE VERSION
In September r9r3, the Armenian community addressed a circular to
the Powers in this sense, but when the French ambassador asked
what the Armenians really expected he was told that it was for the
Powers to see whether the desires of the Armenians could be satis-
fied.r6 It was an artless, a pitiful policy, since the Ottomans were not
prepared to accord autonomy nor would the Russians really favour it;
the Russians were always ready to use the Armenian agitation as a
convenient pretext to achieve their end, which was to annex the
Armenian provinces. On two occasions Great Britain proposed to
Russia to take drastic measures to solve the Armenian question,
once in 1895 and again in r9r3; and on both occasions the Russians
first equivocated, and then refused: with the Armenian questions the
Russians would deal strictly on their own terms.lo With neither the
Russians nor the Ottomans willing, what chance did autonomy stand?
As Salisbury told Canon MacColl, a turbulent leader of the Armenian
agitation in Great Britain, in 1896: 'You might turn this government
out, and ten other governments after it, but you would not be able
to accomplish a result which Austria, Russia, Germany, France and
Turkey are determined to prevent'.l? This persistent and obstinate
pursuit of a fantasy is an indication of how little the Armenians were
ready to deal with the world as they found it - and the world broke
them.
There remained the 'reforms and improvements'. The aim of these
in the Armenian provinces, as elsewhere in the Ottoman empire, was
twofold: to procure security for the subject by protecting him from
arbitrary impositions, and to create machinery whereby the business
of government could be efficiently and expeditiously dispatched. For
these to be attained or even approximated, two conditions were
essential. These were indicated by Sir Edward Grey in r9r3, after
nearly three-quarters of a century of experiments in 'reform' with
which Great Britain had been intimately associated. 'As to reform'
he wrote to the British ambassador at St Petersburg, 'Your Excell
Iency should impress upon Ilfr Sazonow that two conditions are
essential to success: (r) Unanimity amongst the Powers; (z) Accep-
tance of their scheme by Turkey, without coercion'.l8
From the circumstances of the case the first condition could never
be attained. Till the emergence of the German empire on the European
scene, Great Britain and Russia could never reach agreement on the
e.rstern question. Germany only made the situation infinitely more
complicated.
292
 .MINORITIES,

As to the second condition, some Ottomans had at times, it is true,

been themselves zealous exponents of reform. But there were always
many who objected to it, not, it would seem, from obscurantism, but
from a correct understanding of the nature of the Ottoman state and
of the sources of Ottoman power. The Ottoman state was a vast
conglomeration of groups held together by the might and prestige of
the house of Osman; the Ottoman state and the Ottoman house
were bound up each with the other. This the Ottomans understood
very well. They also understood another tNng: that Ottoman power
meant Muslim supremacy. It was that 'domineering Mahometan
sentiment, which has determined the relations of Islam and non-
Islam in daily life' of which Gladstone speaks,re which gave strength
and loyalty to those on whom the security of the Ottoman state
depended. The realisation of this was very vivid in Europe till this
century when it seems to have been strangely forgotten. Now, since
reforms would do away both with the personal power of the Ottoman
rulers and with Muslim supremacy, the Ottomans could hardly be
expected to acquiesce in them: hence the failure of reform. As Sir
Charles Eliot made his pasha saY:
This country is a dish of soup, and no one has any real intention except
to eat it. We eat it in the good old-fashioned way with a big spoon. You
bore Iittle holes in the bottom of the soup bowl and draw it ofi with pipes.
Then you propose that the practice of eating soup with sPoons should be
abolished as uncivilised, because you know we have no gimlets and don't
understand this trick of drinking through pipes.to
There was also another reason for this failure. Before the advent of
European Powers, Ottoman administration was certainly corrupt
and arbitrary, but it was ramshackle and inefficient and left many
interstices by which the subject could hope to escape its terrors, and
bribery was a traditional and recognised method of mitigating
severities and easing difficulties.2r The reforms sought to introduce
European methods into this completely alien tradition' In the absence
of the honesty and public spirit which make them tolerable in Europe,
such novelties tend rather to make matters worse: they teach the
corrupt and unscrupulous administrator new ways of extorting bribes
and perquisites, they make it more difficult to escape the eye of
malevolent authority, and easier for adventurers and desperadoes to
establish themselves securely in ofrce. Railways, telegraphs, filing
cabinets, etc. become instruments of a monstrous and inescapable
control. In the case of the Armenians, for instance, the telegraph
293
 THE CHATHAM HOUSE VERSION
enabled Abdul Hamid to concert and supervise those outbreaks of
savagery which were his remedy for the Armenian difrculty.2r In
truth, it was well recognised by liberal opinion in England in the
nineteenth century - and it was liberal opinion which was convinced
of the necessity of reforms in the east - that the only way to make
reforms work was for a European government to administer them
directly.ss The change from a belief in reforms supervised by Europe
to one in national selfdetermination constitutes a significant moment
in the degradation of liberal dogma.
'Reform and improvements'were, then, of little help and they were
not wanted by the Ottomans. But neither were they wanted by those
Armenians who now took hold of the Armenian community and
imposed on it their leadership. Thus we find the leader of the Hintchak
Revolutionary Party rejecting the idea of reforms:
This plan of ours which can be summed up in the words 'autonomous
Armenia for the Armenians' . . , cannot be considered extravagant. But
there is a very wide gulf between this moderate practical plan of ours,
which is that of the whole of Armenia, and the plan of reforms proposed
in the collective notes of the ambassadors, and to bridge that gulf no
means are left to the Armenians but insurrection, which would once
again bring to the front the Armenian Question , . .'.sr

No means but insurrection: this was clear and it was meant

seriously. The leaders of the Armenian nationalist movement had
already decided that autonomy was their goal and they thought they
had a strategy to achieve it. And these leaders took care that Ar-
menians would not be found to help with the reforms.zs For it was not
in vain that they surveyed the history of Europe from the French
Revolution, and not in vain that they meditated on the liberation of
Greece, Serbia, Rumania and Bulgaria from the Ottoman yoke. They
would make insurrection and they would bring the Armenian Question
'to the front'. Then the Powers would have to deal with it, and if
they failed to deal with it according to the desires of the nationalists,
why, there were always other means of keeping the Armenian
Question 'to the front'.
It might seem, however, that the decision to resort to rebellion
came with the failure of reform. But this is not so. As early as 1882,
four years after the Congress of Berlin, action committees were being
formed by the Armenians in Erzerum and arms were being procured.so
Secret societies were set up, notably the Hintchaks in 1886 in
Switzerland and the Troshaks in the Caucasus which, combining with
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 'MINoRITIES'
other revolutionaries became in r89o the well-known Dashnakzoution,
or Armenian Revolutionary Federation.zT Agents were sent from the
Caucasus to Ottoman Armenia in order to spread the creed and to
collect money for the cause from rich Armenians. These agents, being
outsiders who had moreover learnt from the Russian nihilists the
methods and doctrines of revolutionary activism,20 were not particu-
larly concerned at the effect which their activities might have on the
objects of their proselytism.2e The Ottoman authorities took alarm
and began to persecute, and the vicious circle was created that was to
lead, at last, to the extermination and dispersal of the Armenian
communities of Turkey. Thus, in 1889, Colonel Chermside reports
from Trebizond:'The petty, harassing persecutions of Armenians in
the Van district are a matter of regret. I consider the Armenian
populations in those districts restless and disafiected . . .'.80 In 1893,
a few years before the massacres were to be unleashed by Abdul
Hamid, Vice-Consul Newton writes from Angora:

Last autumn the movement in a modified form extended to this

province, first showing itself in the district of Caesarea and afterwards at
Yuzgat, by meetings held by the Armenians in the gardens and fields
outside the towns. Finding the authorities did not appear to take any
notice, they began to hold meetings in their houses, in the towns, which
excited the suspicions of the government. Consequently spies were set to
watch them, and sufficient evidence was thus procured showing a revolu-
tionary feeling, which evidently justified the authority in arresting many
of those rvho attended these meetings.8l

The aim of nationalists is clear. It was to create'incidents', provoke

the Turks to excesses, and thereby bring about the intervention of
the Powers. The British Blue Books of the period before the massacres
are full of reports of attacks by Armenian agents or bands on Turks
and Kurds, of the distribution of seditious prints, of the discoveries
by Ottoman authorities of caches of bombs and arms, of demonstra-
tions organised by Armenians in Constantinople and the provinces.
In most cases, the incidents would have no immediate far-reaching
consequences, but some of them, either owing to circumstances or to
the ill-will of Ottoman officials, led to serious results. In Sasun in
1894, in Zeitw in 1895, the incidents led to armed risings by the
Armenians of these localities which were, of course, bloodily sup-
pressed. An outcry was the result, consular commissions were ap-
pointed to investigate, and the Armenian leaders had the consolation
295
 THE CHATHAM HOUSE VERSION
of knowing that anotherblowhad been struckin the cause of Armenian
independence.
The Blue Books also record another class of incident, quite as large
as the first, created by the nationalists, but this much more sinister.
It seems that the nationalists had to convince not only the Ottoman
government and the Powers of the wisdom of satisfying their desires,
they had to convince the generality of the Armenian people as well.
This must be the explanation of the attack organised by them on the
patriarch as he was officiating in the cathedral of Koum Kapou at
Constantinople in July r89o, as a result of which he had to resign his
ofrce'88 of a subsequent attempt to assassinate another patriarch in
1894;88 of the recurrent reports of Armenians executed for being
'informers', for refusing to contribute to nationalist funds, for 'col-
laborating' with the Ottoman government. Nor did the nationalists
try to hide or excuse these activities. Here is a passage from a revolu-
tionary placard posted in Sivas in December 1893:
Osmanlis! . . . The examples are before your eyes. How many hundreds
of rascals in Constantinople, Van, Erzerum, Alashkert, Harpout, Cesarea,
Marsovan, Amassia and other towns have been killed by the Armenian
revolutionaries? What were these rascals? Armeniansl and again
Armenianst If our aim was against the Mohamedans or Mohamedanism,
as the government tries to make you think, why should we kill the
Armenians?r.

The Armenians were forced to be free.

What did the Ottoman government have to say to all this? Its
attitude was as clear as that of the nationalists: this agitation would
have only one result, to invite Europe to meddle again in the affairs
of the Ottoman empire. This was not to be tolerated; the Armenians
had to desist or they would take the consequences. As early as Sep-
tember 1878, at the very beginning of tbe Armenian Question, Layard
reported a sigaificant discussion he had with the Grand Vizier on the
subject of agitation by Russian agents among the Armenians. An
Armenian exodus from the Empire, remarked the Grand Vizier,
might be thought by some to be rather to the advantage than
otherwise of Turkey, for she would thereby be relieved from a
Christian population which might become thereafter a source of
danger and trouble by inviting foreiga interference. On such a view,
the Porte would do well, the Grand Vizier added, to imitate the
example set to it by Russia in Bulgaria, where lar3e Muslim popula-
296
 ,MINoRITIES,

tions had been expelled from their ancestral homes.so It is worth while
also to reproduce an address made by the mutassarif of Amasia in
1893 to Armenians in his district, which expresses eloquently and
concisely the Ottoman view of the situation:
You are hoping to get help from Europeans [he told them] and you
lrneel down before them. You do not remark that they are playing a joke
on your backs. Europeans have been trying for a long time to destroy the
Turkish empire, and they put you forward now to create rew troubles. If
even their plans would succeed would you be any better off than now?
You pay little tax; you are free from military service; you keep your
religion, your language and your customs. Would the Power coming in
our place give you the same liberties? Look at Russia, where the govern-
ment has shut up all your schools and is now considering the question of
shutting up your principal church at Etchmiadzin. Why do you send your
children to the schools of the Europeans where their spirit is corrupted
by new and foolish ideas?rt
So, if
the Armenians needed a lesson, Abdul Hamid felt he was
quite able to give them one. His policy was that amalgam of massive
brutality and of primitive cunning which constitutes traditional
oriental statecraft. The Armenians wanted autonomy, did they? They
created incidents? They threatened the intervention of the Powers?
He would show them what his loyal Kurdish tribes would have to
say to Armenian autonomy in their Kurdistan, and what their way
was of dealing with incidents. A massacre or two would show the
Armenians what he meant.lc And as for the Powers, he could easily
settle them. Did Russia propose intervention? He would whisper in
her ear that Britain wanted a foothold on the Caucasus. Did Lord
Salisbury threaten action? Ifa would threaten Lord Salisbury with
placing the Ottoman empire in the hands of Russia. Abdul Hamid's
reaction then was straightforward and elementary. The Armenians
were rebelling against their lord: punishment should be meted out
to them. They wanted reforms and constitutions and such like
Frankish abominations: they would not be permitted to indulge
their perverse desires. They threatened to diminish the Ottoman
estate and to introduce into it the meddlesome foreigner; they would
see retribution. As for the indignation of the Europeans and their
outcries, all that was part of a hypocritical conspiracy to defraud
him and the house of Osman of another province. He would not give
way, he would resist, he would massacre. It was PerhaPs the last
powerful manifestation of the pride of family and of religion as a
297
 THE CHATHAM HOUSE VERSION
motive for the policy of an empire. After that, the Ottomans became
Young Turks.
The nationalists were checkmated but did not confess defeat. 'A
l'organisation militaire de l'Empire Ottoman, nous opposons des
bandes volantes et bien arm6es d'intrdpides rdvolutionnaires qui ont
inflig6 maintes pertes aux troupes rCgulidres et aux hordes de "Bachi-
bousouks" ... aux ddlations judaiques de la police secrdte nous
opposons la terreur rouge . . .'. Thus the Armenian Revolutionary
Federation on 1896. And the incidents continued to be organised.
In x897, just after the massacres of 1895-6, and in r9o5, there are
records of minor insurrections also leading to massacres.s? And on the
eve of the Young Turk coup d.'ltat of. r9o8, there was still the same
tension in Ottoman Armenia fed and tended by the revolutionaries.
Thus the American ambassador in a dispatch of 5 August r9o7
speaks of 'a considerable degree of disaffection and revolutionary
movement on the part of a portion of the Armenian population in the
district of Van. Several cold-blooded murders have been committed
even in the streets of that city and a certain feeling of apprehension
and unrest appears generally to prevail'; and in another dispatch of
ro Febnrary r9o8 he reports more disturbances in Van, revolutionaries
killing and wounding seventeen Ottoman soldiers, executing a
'traitor', and a considerable store of rifles, cartridges and dynamite
seized.sE Later, when the catastrophe was final, complete, irredeem-
able, the nationalists were still indignant that their methods had had
such untoward consequences. They could not understand why
salvation was so recalcitrant in coming, why the easy path which the
example of so many European revolutions had promised should have
proved full of vipers and of nettles. The desolate wind of futility
blows through the report the Dashnaks presented to the International
Socialist Congress in Hamburg in rgz3.

Every time that, through the irresistible force of things, the movement
of Armenian emancipation expressed itself in revolutionary action, every
time that the party of the Armenian Risorgimento tried, at the head of the
conscious elements of the country, to draw the attention of the world, by
armed insurrections or peaceful demonstrations, to the intolerable fate
of the Armenian people, the Turkish government threw the Armenian
masses, peaceful and disarmed, to the mercy of its troops, its bachi-
bazouks and of the Turkish and Kurdish mob.te

There is a surprised air about the statement.

298
 .MINORITIES,

But the Hamidian mi$sacres were not the end of the story. When
the Young Turks deposed Abdul Hamid and took over the govern-
ment of the Ottoman empire, the Dashnaks, who had had some kind
of understanding with the Paris group of Young Turks, permitted
themselves for a time to hope that their aspirations would be fulfilled.
They soon found out that it was not to be so. The Young Turks
were nationalists, just as the Armenian leaders were, and therefore
even less prepared than Abdul Hamid to concede autonomy - which
was what the Armenians still wanted. According to Young Turk
theory, the Armenians were not really Armenians but Ottomans
who happened to speak Armenian and to profess the Christian reli-
gion; they were part of the Ottoman nation like their brothers the
Muslims, the Greek Orthodox, the Kurds and the Macedonians. This
absurdity could, of course, take in nobody for long, Ieast of all the
Armenian nationalists, whose creed was that an Armenian nation
existed on its own. Very well then, said the Young Turks, if they
refuse to be part of the Ottoman nation they shall be cut off from the
body of that nation. It is to be observed that the Young Turk theory
of persecution differed sensibly from the Hamidian theory.
And cut ofi the Armenians were. Just before the war of r9r4 the
Russians were again in contact with the nationalists, holding out
hopes and stirring them up..o At the outbreak of the war the attitude
of the Armenian nationalists in Turkey was ambiguous and the Young
Turks must have been, from the start, suspicious. Then occurred the
final folly which gave the Turks the pretext for the ultimate liquida-
tion. In December r9r4 an Armenian volunteer division, wearing
Russian uniforms, invaded the plain of Passinlar, north of Erzerum.
In r9r5 the town of Van, predominantly Armenian, was seized by the
population and a local Armenian government instituted.{lThe depor-
tations started. Everywhere the Armenians were assembled and sent
ofi suddenly on foot, without notice, without any baggage, to perish
from famine, cold, maltreatment and hard labour in the wildernesses
of Anatolia, the mountains of Cilicia and the deserts of Syria. A law
was passed concerning 'the properties of persons who have been
transported elsewhere' to regularise the distribution of Armenian
goods to the populace and the soldiery. The largesse of the progressive
Young Turks was as generous as that of any primitive sultan. Then
there was the short, miserable episode of the republic of Armenia in
rgtg-2o. That was the end. But is not Armenian autonomy now to
be at last enjoyed in the benign shadow of the Soviet Union? and has

299
 THE CHATHA}T HOUSE VERSION
not the labour of the reformers at last come to fruition in a Turkey
the very image of Europe? And is not the ramshackle, tyrannous,
inefrcient, blasting and withering rule of the Ottomans destroyed for
ever? Thus we may rejoice that all things in the end are well.

The Armenians had nearly a century to deal, as well as they could,

with the disturbance introduced by the west in their midst. They
failed utterly; but the struggle they waged - such as it was - was long
and desperate. The Jews of Iraq did not have even this measure of
luck. A bare thirty years sufficed to destroy their community and
achieve their ruin, and the resistance they could ofier was derisory
and from the start ineffective. When the British troops occupied
Baghdad in rgt7, the Jews were the most important single element in
the town{s - by their numbers, their wealth, their relations with
those among them who had established themselves overseas (notably
in Bombay and Manchester), and by their acknowledged superior
position in the Mesopotamian economy. In November r9r8, when it
looked as though the Ottomans were finally repulsed and that the
British would remain in occupation, they decided to try to define
their relation to the new rulers of the land; they were also moved by
nrmours and allegations - following the publication of an Anglo-
French Declaration which promised 'to encourage and assist in the
establishment of indigenous governments and administrations in
Syria and Mesopotamia' - that the country was to be given over to
the 'Arabs' to rule. They petitioned the civil commissioner in Baghdad
and asked to be allowed to become British subjects. They said that
they did not like the prospect of an indigenous government to rule
over them, and gave three reasons in support of their position: the
Arabs were politically irresponsible, they had no administrative
experience, and they could be fanatical and intolerant. In r9r9 they
returned to the charge with another petition, and it is interesting to
reproduce it, to show the pathetic caution with which they proceeded
and their anxiety to pay lip-service to the shibboleths of the age.
They said:
The proclaimed aim of the Great Allied Powers in the most tremendous
world war is the complete liberation of oppressed nationalities with the
object of assuring their legitimate political aspirations as well as their
economical and social development.
The full development of peoples whom several centuries of national
lethargy plunged into a state of utter unpreparedness for self-administra-

300
 .MINORITIES,

tion is only obtainable through the material and moral cooperation of a

great European Power. We are therefore of opinion:
That the nomination of an amir {or Mesopotamia is inadmissible.
That a direct British government is indispensable for the future
administration of this country.
The petition was not granted. It could not, by any conceivable
means, have been granted in r9r9. The Jews of Baghdad were de-
feated from the start; but they did not know it and would not know it
for a long time to come. The situation was completely beyond their
understanding. For how could they have discerned the prodigious
spectacle that then appeared, of deliquescent Liberals and Tanued'
Tories, banding together in London to utilise the might and authority
of a victorious empire in order to bring about in the middle east,
consciously and willingly, such conditions as had hitherto been seen
only with the decay of authority and the decline of empire? Power
the Jews of Baghdad could understand, certainly, and the coarse,
capricious exercise of power. The right of conquest they could cheer-
fully acknowledge, for all their history had taught them that there
lay safety. These things and these things alone lay within their
experience, and how pitifully inadequate they were going to prove!
It was not by the help of this experience that they would understand
the strange, exquisite perversions of the western conscience : the genial
eccentricity of Mr Philby, proposing to make a thug who took his
fancy the president of an Iraqi republic; or the fond foolishness of
Miss Bell, thinking to stand godmother to a new Abbassid empire;
or the disoriented fanaticism of Colonel Lawrence, proclaiming that
he would be dishonoured if the progeny of the sharif of Mecca was not
forthwith provided with thrones. Yet it was with such people that
their fate rested.
So Faisal, the son of the sharif, was brought from Mecca to govern
his new kingdom of lraq. The Jews decided on a last attempt. In tgzr
they went to see Sir Percy Cox, the high commissioner, and again
asked for the privilege of becoming British subjects.
They based their claim on the fact that their country had been con-
quered by British troops, and that they were actually at the moment
Turkish subjects under British control; and that therefore the British
had no moral right to force them to accept a change of nationality unless
they so desired it. They were eventually appeased by the personal in-
fluence of the high commissioner, and by his assurance that ample
guarantees would be afforded them by the British government against
any form of local tyranny . . .'.o
30r
 THE CHATHAM HOUSE VERSION
There was plainly little prospect of anything but Faisal and his Iraqi
government. To this they would have to resign themselves.
Many who were experienced and wise, of whom perhaps the most
eloquent was Sir Arnold Wilson, have expressed their misgivings over
the policy of setting up ramshackle national sovereignties in the
middle east. But the most moving protest is that of a young British
officer, straight and upstanding and true, one of those whom the
genius of England knew so well how to nurture and rear. The fortunes
of war had taken him to Mesopotamia, and he found himself in r9r8
- he who was nothing to Mesopotamia and to whom Mesopotamia
was nothing - in charge of a district in the Middle Euphrates, where
he'was to be killed in the rising of r9zo. Prior to that rising, the
Nation, in common with many other newspapers in Britain, was
wagrng a campaign in favour of self-determination. From the depth
of the Mesopotamian countryside he was moved to write to the editor,
his qualification being that, as he put it, 'a year ago I was writing
college essays upon the Will of the People and Natural Law'.

You, Sir, and your correspondents [he told the editor] want to see
'national aspirations gratified', the recognition of the 'unity of the Arab
race', the establishment of responsible Arab government, and the absolute
prevention of any further additions to the already over-weighted British
empire. So do I, and it is just for this reason that I want you not to allow
this slipshod thinking, and to make it clear, as it has never (to my knorv-
ledge) been made clear, that progress on such lines is a matter of extra-
ordinary difficulty and that theory, alike with history, gives no help in
solving a problem which has never yet been attempted. The problem is,
of course, how to provide a native government with the force required to
govern a wild and very mixed race divided by the bitterest religious
hostilities and tribal feuds, and containing in its midst also colonies of
fiercely hated Jews and Christians. Once stated, the problem needs no
enlargement from me: that you allow your correspondents to proceed
airily in the assumption . . . that, if left alone, these people could govern
themselves and freely employ European advisers, is almost Tolstoyan in
its view of human nature.

He went on to make these points:

r. We are dealing with people who have lost all consciousness oI

nationality in the political sense, who have from time immemorial been
governed by foreigners, and among whom indeed the very word 'Arab'
is used scorn{ully.
z. These people are utterly unvocal, like all uneducated masses, and it
302
 .MINoRITIES,
is impossible to frnd out at all what they think about government, We
deal with them largely in the mass, through their shaikhs, and the shaikh,s
view oI governmcnt is an objectionable means oI extracting money, . , ..r
So, the unvocal masses and the colonies of Jews and Christians in
their midst were handed over the next year to a band of men who
were, to start with, for the most part, minor bureaucrats or little
officers in the Ottoman service, and who were moved with certain
crude and virulent notions, spreading from Europe and picked up
second-hand in Constantinople, Cairo and the ports of the Levant;
men narrow and ignorant, devoid of loyalty and piety, of violent and
ungovernable impulses.{6
It may clarify the situation in which the Jews of Iraq found them-
selves, as a result of this policy, if we consider the situation of another
minority which found itself very early in extremis under the Iraqi
government. The Assyrians (as they came to be known in Britain and
America in the nineteenth century) were Christians long established
in the Hakkiari range in southern Anatolia. During the war, at the
instigation of the Russians, they rose against the Ottomans. Unlike
the Sharifians their move was a disaster, They had to fight their way
under very difficult conditions through the mountains between
Persia and Anatolia. They at last got through to Mesopotamia and
were safe under the protection of the British army. After the war they
were concentrated in Mosul, just to the south of their former dwelling
places but on the other side of the mountain. They rvere landless,
destitute, and their resettlement would require patience, skill and
goodwill. In the rgzos the British recruited them into levies. They
showed themselves to be good fighters and took part in the various
expeditions by which the British quelled the Kurds and compelled
them to submit to the Baghdad government. When, in 1929, the
British government announced that it was giving up the mandate for
Iraq and recommending its admission to the League, the Assyrians
were alarmed. Were they, then, to be left to the mercies of Muslim
savages and that by the action of a Christian Power? They would not
believe it, it was too absurd, a sinister joke which somebody was
playing at their expense. They approached the British high com-
missioner and were told, Yes, it was true, they were going to be under
the Iraqi government. Could they then have some safeguards, at
least the same comrnunal rights, as they were accustomed to under the
Ottomans, and as the Mosul commission had recommended in r9z5
that they should continue to have in Iraq?rc No, they could not, and

303
 THE CHATHAM HOUSE VERSION
the high commissioner impatiently told them'to make the best of the
inevitable and have nothing to do with such impracticable separatist
pretensions'. Petitions were sent on their behalf to the Lea6ue of
Nations. on these petitions the comment of the British government
was:
They are satisfred that, upon the establishment of Iraq as an inde-
pendent state, member of the League of Nations, there will be no need
io. .rry special discrimination in Iavour of racial and religious minorities
beyond such general guarantees as have been taken in the past from other
candidates for adnission to membership of the League.

As the high commissioner, Sir Francis Humphrys, told the Permanent

Mandates Commission, such special discrimination
might have a tendency to prevent the minorities concerned from regard-
ing themselves, or being themselves regarded . . . as true citizens of their
na-tive state, in which lies the only certain hope of their future welfare."

And indeed, the whole business was being taken altogether too
seriously:
Too much importance fhe said] should not be attached to local sec-
tarian dissensions, the explanation for which was often to be found in
some purely trivial matter or incident.'t

The colonial secretary, for his part, firmly closed his ears to rePre-
sentations made on behalf of the Assyrians.
In his Lordship,s opinion [read a letter sent on behalf of Lord Passfield
at the end of rg3o to someone who had ventured on such representations]
the dissemination of these misleading reports can only serve to excite
religious animosities, to estrange the Iraq government, and to unsettle
the Assyrians themselves, whose hopes of future welfare depend on their
becoming merged in the body politic of Iraq, being accepted as loyal
subjects of King Faisal and living in peace with their neighbours' ' ' ' His
Lordship [the letter sternly continued] can imagine no greater disservice
to the communities whose welfare you claim to have at heart, than to
encourage them in agitation against the government of the country in
which they have to live.'e

The Assyrians and the Iraqi government were face to face, and the
essence of their respective positions is to be found in a letter of the
Assyrian patriarch and an address of the Iraqi mutassarif of Mosul.
The Assyrian patriarch Pursued with the Iraqi government his
304
 ,MINORITIEs,

request that the Assyrian community should be grated a measure of

self-government under his direction. It is a symptom of the con-
fusion which the arrival of the west introduced that he has to borrow
its inadequate political idiom in order to describe something for which
this idiom was never meant. He thus has to describe the communal
government of the Ottoman system as a 'temporal power' exercised
by the head of a community. The implication of this, of course, was
that 'temporal power' is distinct from 'spiritual power' - a cornmon-
place in western thought but unknown, till quite recently, in the east,
where temporal and spiritual power were alwaln one, and their
separation a nonsensical notion corresponding to no known reality.
The patriarch, therefore, put his case in these terms:
The temporal power has not been assumed by me, but it has descended
to me from centuries past as a legalised delegation of the people to the
patriarch. It was not only tolerated, but also officially recognised in
the past by the old Sasanid kings, Islamic caliphs, Moghul khans and
Ottoman sultans,lo

To speak of 'temporal power' was to concede half the game; and the
mutassarif was quick with his rejoinder, improving the occasion too,
with an original theory of Ottoman history:
The government do not agree to grant to Mar Shimun [the Patriarch]
temporal rule, for she is not in the habit of granting such rule to any
religious heads of lraq, and there is no reason why we should make any
exception for Mar Shimun. Before the world war he was recognised as
spiritual and temporal head of the Assyrians. This was due to the lax (sic)
of the Turkish regime. . . . But by the declining of the Turkish regime this
rule was abolished. . . . Any individual will be treated distinctly by the
government and not through the heads who consider the peasants as
their slaves, and master the results of their toil, to live easy lives.tr
And the argument was reinforced by the British administrative
inspector:
Either the Assyrians should admit that they are Iraqi subjects, enjoy-
ing the same rights and subjected to the same laws as the other natives of
the country, whether Kurds, Arabs, Mohammedans, Christians or Jews,
or they should be prepared to leave the country.tt

No, the Iraqi government was not a Sasanid king, as Islamic caliph,
a Moghul khan or an Ottoman sultan. It was a modern state with all
the latest western improvements. The Assyrians were at its mercy:
305
 THE CHATHAM HOUSE VERSION
but they could never grasp this. In the summer of 1933 they were
involved in a fracas on the Iraqi-Syrian frontier, which was the
pretext for a massacre carried out by the new army of the Iraqi
government, which, in raping Assyrian woman and killing Assyrian
men felt that they were inflicting a defeat on the British whose clients
and auxiliaries they considered the Assyrians to be.68 The account of
the Assyrians was well and truly settled. The British did not even
protest, the embassy believing that the best policy at that juncture
was delicately to advise without making 'irritating' demands and
holding that, in any event, proof of a massacre was difficult legally to
establish.6l
Such was the situation with which the Jews - and the other
'minorities' had to cope. They failed to master it, because they did
not know how to. They were considered Iraqis first and Jews second -
that is, as far as their duties went. When it came to their rights, they
were still the second-class subject of Ottoman times - but they had,
in the meanwhile, lost all the advantages of the Ottoman arrange-
ment: communal standing and self-government; now, as the
mutassarif of Mosul put it, 'any individual will be treated distinctly
by the government'. Leviathan was hungry. He was also ferocious.
For the other great advantage of the Ottoman regime, its impervious-
ness to ideology and doctrinaire adventure, had also disappeared.
The Iraqi government was out to create, with the heterogeneous and
unwilling elements under its control, a'nation'. And here, Jews would
sufier from additional disadvantages. They were conspicuous: the
majority of them lived in Baghdad, the capital, where their position
was prominent. They were utterly without interest in this absurd
attempt to form a nation; they had tried to regulate their position
with the British overlord in the only way they understood. Their
attempt had misfired, so they withdrew into their own afiairs, and
looked on with superior amusement at the childish and dishonest
ways of these upstarts who pretended to be a government. So that
any young nationalist worth his salt would - and did - reason that the
Jews, by their very prominence, were a dangeg to the unity of the
Iraqi nation. The young nationalists found encouragement in this
train of thought from the Nazis who, about 1936, began to pay atten-
tion to the middle east. On the pretext of making gestures against
Zionism - with which the Iraqi Jews had no connection - demonstra-
tions were organised in which Jewish shops were wrecked and looted,
bombs were thrown at Jewish clubs, and individual Jews were
306
 .MINORITIES,

murdered in the streets. These activities occurred in 1935-6 during

the administration of Yasin al-Hashimi whose dictatorial proclivities
and pan-Arab ambitions no doubt led him to tolerate, if not to insti-
gate them. This terrorism created such fear in the Jewish community
that they organised a oneday strike during which all Jewish shops
and businesses were closed. The terror ceased when Yasin was
toppled from power by Bakr Sidqi's coup d,'ilat.
Then, in r94r, occured an event which must remain a landmark in
the modern history of Iraqi Jewry. In April of that year some poli-
ticians and army oftcers with Nazi connections staged a cowp d'itat,
and soon afterwards declared war against Great Britain. By the
swiftness and decision of Mr Churchill the movement - which could
have had very serious results - was promptly snuffed out. On r June,
its leaders were in flight and Baghdad had fallen to the British. On
the following two days, a massacre broke out, carried out by soldiers
and policemen who had been fanaticised by the collapsed regime and
were now enraged by its failure. The responsible officials in Baghdad
- the mutassarif, the director-general of police and the mayor -
proved feckless and cowardly. They refused to take any action to
check the disorders; hordes of tribesmen, therefore, attracted by the
prospect of loot, poured into the city and joined the soldiers and the
police in their work. The victims of the outbreak were the Jews. It is
thought that some six hundred were murdered, and a very large
number wounded. The damage to property was extensive.66 The
British army, standing on the outskirts of Baghdad, did not inter-
fere in any way. Mr Somerset de Chair, who was intelligence officer
of the force, tells the story well:

Reading came to me. 'Why do our troops not go into Baghdad?' he

asked. '{r':eady they may be looting, I know there will be many people
killed if our troops do not enter.'
This was my own view and the ways of the Foreign Office were beyond
my comprehension. From the hour of the Cease Fire their word had pre-
vailed. Having fought our way, step by step, to the threshold of the city,
we must now cool our heels outside. It would, apparently, be lowering to
the dignity of our ally, the regent [who had fled to Palestine at thre coup
d'Ctat), if he were seen to be supported on arrival by British bayonets.sc

This could not be allowed. As the British ambassador, Sir Kinahan

Cornwallis ('whose word', Miss Stark says, 'was the deciding factor
in immediate policy') solicitously informed the Iraqi armistice

3o7
 THE CHATHAM HOUSE VERSION
delegates: 'Many years ago I fought, together with King Faisal the
lamented who was my friend for the freeing of the Arabs, and to-
gether we built up the kingdom of Iraq. And do you think I would
willingly see destroyed what I myself have helped to build?'b? It
was not only Cornwallis who entertained and expressed such elevated
and fervent sentiments. Behind him stood Wavell, the commander-
in-chief, middle east. Whether following his own judgment or that
of his advisers in Cairo, all through the month of May he had engaged
in a polemic with Delhi and London, accusing the former of wanting
a military occupation of Iraq and impressing on the latter the neces-
sity of securing the good graces of the Iraqi government, failing which
the whole Arab world would go up in flames. In the course of this
polemic, he had declared, in a telegram of ro May, that Baghdad
should not be occupied 'except temporarily to secure favourable
government or at request Iraqi government'. We may here have the
explanation why the British troops were allowed to look on while a
city lying in their power was given over to murder and rapine.68 We
may contrast what happened in r94r with an earlier British occuPa-
tion of Baghdad. When the city fell to the British arms in March r9r7,
looting and disorder also broke out, but, as honour required, they
were speedily repressed and the commander, General Maude, noted
at the time: 'The city was rather in a turmoil, for directly the Turks
went out at ten o'clock in the morning, Kurds and Arabs began
looting everywhere, and although we got into the city by about
6.00 a.m., there was time for them to do a considerable amount of
damage. Still we soon reduced them to order'.60 Such, then, was the
ultimate degradation of a policy which, in the days of its arrogant
youth, gloried in branding every other policy for the middle east as
sordid and degrading. It has already been remarked by students of the
period how many of the same men who were prominent in the middle
east in the first world war came back to the scene of their activities
in the second.oo It remains, perhaps, to be added that the massacres
also had their parallels: for in Damascus, too, in October r9r8, where
Lawrence had contrived to install the Arab 'army'in sole occupation,
massacres broke out after their entry;ol and the Jews of
Baghdad, in June r94r, stood exactly in the same relation to the
Arabs and the British as the Armenians did in Aleppo, in the massacre
of February r9r9.0r The Jews were terrorised and demoralised com-
pletely. They had been slaughtered and looted, and nobody had come
forward to protect them. Their sense of security experienced a shock
308
 ,MINoRITIEs,

from which it was never to revive. The governors of Iraq, no doubt,

also realised how completely they had the Jews in their power, to do
with them what they chose.
It was then that a saviour declared his presence to the Jews of
Baghdad. The Zionists came to ofier their help. Palestinian Jews
were enrolled in, or employed by, the British army and the Zionists
made some of these their emissaries to the Jews of Baghdad, whom
otherwise they could not have hoped to reach.68 These emissaries
argued eloquently and forcefully the Zionist thesis: that Jewish life
in the Diaspora was poisonous and impossible, that the only salvation
was to become pioneers on the land, in the collectives of Eretz Israel.
Zionism is a doctrine that had no appeal to oriental Jewries. Their
historical experience is profoundly diflerent from that of the east
European Jewries, where Zionism was invented. From the start,
when the Balfour Declaration was issued, the reaction of the Jews of
Baghdad to Zionism was tepid, not to say unfriendly,oa and they
kept aloof from it. As it was, the Zionists had to force themselves on
their attention, when they got the opportunity after r94r. Two
factors favoured the Zionists, one immediate and obvious, the other
hidden and long in elaboration. In the first place there was the recent
massacre, a proof of the precarious position of the community. In
the second, a long preparation had been going on, tending to favour
the reception of the kind of ideas of which the Zionists were the
carriers. The western Jewries, the French one in particular, had long
taken an interest in the welfare of oriental Jewries and had established
through the Alliance Israelite Uniaerselle numerous schools in North
Africa, Persia and the Ottoman empire. The personnel of these
schools, unlike the American missionaries working among the
Armenians, did not conceive it their duty to propagate novel theo-
logical doctrines; but inevitably, they were the agency through which
'modern', 'progressive' and so<alled liberal ideas spread among the
communities where they worked. They were at first opposed bitterly
by the religious hierarchy, and in some cases, as in Baghdad in the
r86os, actually excommunicated and the Jewish population for-
bidden contact with them.06 Gradually however the resistance to
them diminished, and they came to be considered as the leaders of
thought in these communities. A good example of the attitude of
mind they brought to their work may be found in the annual Report
for rgog of the headmaster of the Alliance school in Baghdad. This is
the year when the Young Turk regime, the precursor of these modern
309
 THE CHATHAM HOUSE VERSION
'national'states in the east, was consolidated. The Report records the
headmaster's reaction to the events.
The Jews [he says] were of the most enthusiastic over the triumph of
Iiberty in this country. Well understanding the importance of the new
duties which they now have to shoulder, desirous of preparing themselves
for the tasks of citizenship, wishing to have a share in the economic
revival which is taking place in the empire, their first thoughts turned,
as they should, to the active promotion of the official language in their
schools. The study of Turkish was neglected in the past by the Jews of
Baghdad. They did not use it in business, and they did not aspire to
governmental posts. But now, since the coming of the liberal regime, they
are zealous in the study of this hitherto neglected language.
In the rg2os and the r93os, this was exactly the talk that the Jews
of Baghdad were to hear from the Arab nationalists, in connection
with the revival of classical Arabic; they are now, doubtless, hearint
the same strains from the Zionists in Israel about neo-Hebrew. There
was also another thing which elicited the headmaster's approval:
conscription, made universal by the Young Turks.
Military service will help the bodily regeneration of this enfeebled race.
It will also have other notable results. The rough life of the soldier will
not only season their weakened bodies, it will also fortify their courage
and give them a heightened conscience of their dignity as men and citi-
zens.
Life in common under the tent or in the dormitory, the fact of under-
going the same trials and privations, of being exposed to the same
dangers, of feeling the same anxieties or the same enthusiasms, u'ill
create links of solidarity and of mutual respect and esteem between the
members of different sects. The Jews, morally raised in their own eyes
and in the eyes of their compatriots, will know how to defend, if need be,
their dignity and their honour.Gc
All the prestige of Europe lay behind these plausible sentiments. If,
when they were preached later by the Muslim professors of 'history',
which the Iraqi government insisted on planting in Jewish schools,
Jewish students were not altogether convinced, these same senti-
ments did have a receptive audience when expounded, with reference
to the National Home, by Zionists missionaries at clandestine meet-
ings in the years after r94r. The Zionists, of course, knew nothing
about oriental Jewries, neither their history nor their condition nor
their future. All they knew was that these Jewries were in the past the
object of philanthropy and were now to become the object of proselvt-

3ro
 .MINoRITIES,

ism. They had nothing but contempt for the way of life of these
Jewries which according to them was primitive, feudal and unpro-
gressive.o? They, the Zionists, knew how to remedy these evils. They
offered trade unions and sanitation and collectives - all the things
that to their surprise still did not make the population among whom
they themselves dwelt, take kindly to them. AII the problems then
of the Jews of Baghdad had one source, the fact of the Exile, and
would dl be automatically solved by migration to the Holy Land. It
was this that their envoys pursued, this, and whatever possibilities
there were of obtaining information to help them in their struggle
against the Arabs. So they organised 'cells' of young men attracted
to these ideas, taught them Hebrew, and sometimes the use of arms.o8
The Iraqi police, larger and somewhat less inefficient than the
ordinary run of government departments, could not remain ignorant
of these activities. When the Palestine war began in 1948 they made
many arrests of persons more or less or not at all involved in Zionist
activities, and in the process (as happens in these cases in countries
like Iraq) proceeded to terrorise the Jewish population wholesale,
terror being itself an ordinary method of government in the east and
a convenient means of extracting large bribes. The organisation
which the Zionists had been building began, at last, to show its uses.
They started to agitate and to distribute clandestine tracts, inciting
the Jews to an active opposition to the rough proceedings of the
Iraqi authorities; they offered facilities - though at high prices - for
the smuggling of persecuted Jews to Israel; and obtained, at last, their
first success by organising a Jewish demonstration which unseated
by violence the chief rabbi and head of the community, who was
opposed to Zionism. A scheme of so-called exchange of population
then began to be mooted in many quarters, The idea was, it seems,
to exchange the Jews of the Arab countries against the Arab refugees
from Palestine. The Zionists were, a'priori, in favour of such a scheme.
It tallied very well with their doctrines,oe and indeed we find an
Israeli foreigrr minister speaking of a 'sorting out' of populations in
the middle east as leading to 'greater stability and contentment for
all concerned'.7o It is also said that the Powers were in favour of an
exchange of population.?l There is nothing implausible in this, for is
it not a pendant of the national self-determination invented by them?
To the Iraqi government the idea would also have its attractions for
exactly the same re,rsons as it appealed to the Israeli minister - it
would do away with an element which was a hindrance to national

3II
 THE CHATHAM HOUSE VERSION
unity. In April r95o the Iraqi government passed a law allowing
those Jews who desired it the option to abandon their Iraqi nation-
ality within a year from the passage of the law and to migrate to
Israel. This gave the Zionists their big opportunity. They desired to
liquidate the Jewish community in Iraq and to transport it to
Palestine on the general theoretical ground that a 'sorting out' was
the answer; they also wanted to make Israel as much of. a fait
accompli as they could by concentrating as many Jews in their
territory as possible. There was, of course, also the loss of lives in the
recent war with the Arabs to be made good. So they set out to help
the Iraqi government to achieve its national unity; it was one of
these tacit, monstrous complicities not entirely unknown to history.
The Zionists, then, began to encourate and incite the Jews to emi-
grate to Israel. They pointed out to them their present miserable
condition and painted in glowing colours the wonderful prospects
that awaited them in Israel, where a paternal and provident govern-
ment would enfold them in its all-seeing care. They were at an
advantage in this work because they seem to have captured the
communal machinery set up to organise the emigration, a fact which
gave them contacts, position and authority. The number of Jews who
desired to emigrate wr$, to start with, very small; but the Zionists
were persistent, and as the number of Jews registering for emigration
increased a vicious circle was created and those Jews who had no
wish to emigrate found it harder to remain. It happened at that time
that several bombs were thrown at Jewish places of business, at a
coffee-shop where Jews used to congregate, and at a synagotue
where the intending emigrants were assembled. It is alleged by the
Iraqi government that it was Zionist agents who threw these bombs.?2
This may be so, for the Zionists were capable of using such tactics.Ts
Be this as it may, the Zionists did profit from the incidents, distri-
buting immediately afterwards warnings to the Jews to hasten the
emigration; and in fact, after these incidents, Jews in their thousands
did register for emigration.
By March r95r then, the great majority of the Iraqi Jews had,
obeying a variety of powerful pressures, registered for emigration. A
few thousand who felt able to disregard the repressive and discri-
minatory treatment to which they were subjected and the agitation
of the Zionists, had decided to remain. It was then that the prime
minister, Nuri al Sa'id, convoked Parliament in secret session and
had two laws passed. The first decreed that the possessions of the
312
 .MINORITIES,

emigrating Jews were to be confiscated to the profit of the govern-

ment and to be administered by a secretariat-general of frozen
property. The possessions of the Jews of Iraq became a welcome
addition to the Treasury, and yet another lucrative government
department for the employment and enrichment of yet more func-
tionaries was created. A newspaper under Nuri's control declared that
the Iraqi people had received this law with'appreciation and satis-
faction' and that Nuri had realised a great aim. The newspaper also
praised the particular timing adopted by the statesman, for if his
intentions had been divulged earlier many Jews would have hesitated
to relinquish their nationality.?r The government of Israel protested
against this legislation. It declared that, such being the proceeding
of Iraq, it could not but retaliate: it would be obliged to confucate
property in Israel belonging to Arab refugees. But this property the
government of Israel did not use to repay the dispossessed Iraqi
Jews. The Arab refugees are still in their camPs; the Iraqi govern-
ment is always ready to air their grievances in the United Nations
but not to provide for them out of the money of the dispossessed
Jews.76 And still another pool of misery and discontent was created:
the Iraqi Jews in the Israeli immigrant camPs, tricked and dissatis-
fied, their livelihood and homes taken away from them, their coherent
community destroyed, and themselves forcibly brought to the service
of an ideal which they neither understood nor shared. The second
edict proclaimed by Iraq concerned those Iraqi Jews who had not
given up their Iraqi nationality and who were abroad, but not in
Israel. It decreed that if these Jews did not return to Iraq within a
specified time they would lose their nationality and their goods would
be forfeit to the Iraqi government. The Iraqi Jews who went abroad
also faced the same penalty. These laws, and particularly the second,
were clearly unconstitutional, since the Iraq constitution prohibited
discrimination and declared confiscation illegal.?6 But a remedy lay
nowhere. Not in the Iraqi courts, and not anywhere else. Israel was,
of course, indifierent, since the state of these Jews was but a welcome
proof of the Zionist contention that Jewish life in the Diaspora was
impossible. And none of the Great Powers felt any interest of theirs
threatened by such a situation. When the subject of these laws was
brought up in the British parliament, the minister of state for foreign
affairs replied in tortured and involved language as follows: '. . . ' His
Majesty's government have drawn the attention of the Iraqi govern-
ment to the unfortunate consequences which might ensue if any
313
 THE CHATHAM HOUSE VERSION
ground was given for a charge that those who are involved by these
laws were being subjected to any form of persecution.'?? In 193r, a
representative of Great Britain stood before the Lea6ue of Nations
and, proposing to bestow the dangerous device of sovereignty on
the handful of those politicians who for some thirty years were to
bind and loose in Baghdad, uttered these urgently persuasive words:
'His Majesty's Government fully realised its responsibility in recom-
mending that Iraq should be admitted to the League . . . Should
Iraq prove herself unworthy of the confidence which had been placed
in her, the moral responsibility must rest with His Majesty's Govern-
ment . . .'.zs This Iraqi legislation will inevitably remind one of so
much familiar central and east European discriminatory legislation,
usually directed against the Jews. Such legislation, however, was
inspired by anti-semitic doctrine and found its logical culmination
in the gas chambers. We must, therefore, guard all the more against
attributing the same motives to the rulers of Iraq. Anti-semitism is
generally unknown in the east, though it may yet spread there.7o
What we see here rather is a manifestation of the same old, deep-
seated instinct for rapine which has been inseparable from eastern
government. But this instinct has now at its service the techniques of
administration introduced by the west. Thus we find the Iraqi govern-
ment using administrative and financial controls, usually first intro-
duced by British advisers and experts, for quite different ends, in
order to prosecute a policy of exaction and plunder such as the east
has indeed always known, but the effects of which were in the past
largely nullified through the primitiveness of the means available to
the rulers. A horrible fascination lies today in the prim and proper
prose of the Colonial Office reports of the rgzos, recording the organisa-
tion of this or that department of the police in Iraq, the satisfactory
protress of this or that financial department.
The operation, it may be said in conclusion, was elegantly executed
with the very least of fuss. The Jews of Iraq were uprooted, dis-
possessed and scattered in the space of a year. It was a remarkable
achievement.
In r9r8, when the Arab nationalists were agitating for a state in
Iraq, one of them addressed the Jews of Baghdad as follows: 'Did
not the prophet Moses lead you for forty years through the wilderness
to order to efiect your purification? We, following his example,
bring for your reteneration a pure Khalif from the wilderness.'to
Yes, they did efiect the purification of the Jews of Baghdad, and they

3t4
 ,MINoRITIES,

did make them, with the help of their brethren from over the Jordan,
enter the Holy Land. Thus is manifested in a practical manner that
Arab-Zionist cooperation on which such store was set in r9r9. Is it
not at last satisfied, that profoun d. nostalgie de la boue which so moved
the European Jewries at the hour of their supreme catastrophe, and
do they not have now their own postage stamps and their own
ministers, their own passports and their own secret agents? Are they
not now like all the nations? So is the dream at last realised, and the
design in the end accomplished.
One's first impulse in the face of all this is to say, No good can
come out of it. But this is in the lap of the future, and we are not
diviners. Be it sufficient for the present to record that these things are
evil. That persecutors and persecuted, hunters and hunted are in the
grip of the powers of darkness. It is enough to elucidate how this came
to pass, for the story can at least have this moral, that the conse-
quences of action are incalculable, and that out of the desire to do
good, good may not in fact ensue. The reforms proposed for the
Ottoman empire were not really reforms, but crude, ill-considered,
half-hearted measures to shift power from one group to another and to
distribute it differently within the empire. This was in itself a formid-
able undertaking for foreigners to attempt, their first consideration
being in any case not this but the protection of the interests of their
countries. It was therefore mischievous and misleading to call these
measures 'reforms', as this only served to hide the nature and the
extent of the problem, and to make the inevitable explosions as
unexpected as they were disastrous. The process of change from one
arrangement to another in the middle east could not be easy, and the
manner in which it was initiated ensured that this process bore with
extreme harshness on the populations affected. The improvement of
conditions in the east needed knowledge, good-will and patience; the
statesmen and diplomats who undertook the task were, for the most
part, igzrorant, indifierent and in a hurry; or if not indifferent then
seized with unwholesome passions for Ottoman or Armenian, Arab
or Zionist. Hence the atrocities incident to national self-determination,
the destruction of these small frail communities with very limited
political experience, who were unable to deal with such new and
terrifying manifestations, and the origin of these perverted common-
wealths of the east to which no good man can give his loyalty. The
measure of the failure is that today the west should be exhorted to
build in the east nations where 'Moslems, Christians and Jews can
3r5
 THE CHATHAM HOUSE VERSION
and will live in harmony'.8l The Ottoman state was organised in such
a way as to fulfil precisely this requirement.
The Ottoman system was far from perfect. It was narrow and hide-
bound. It knew nothing of the richness, the flexibility and the oppor-
tunities existing in the western tradition. But its conventions were
well established and its modalities well understood. In due course,
the habits perhaps would be capable of being fostered,

that made old wrong

Melt down as it were wax in the sun's rays.
If reforms were needed or were practicable, there is nothing clearer
than that they could succeed only if they proceeded from native
traditions and were accomplished with native means. The pressure,
the example and the inevitable influence of Europe put this out of the
question. But even if European ways had not been alien and confusing,
the fact that reforms were inextricably mixed with the interests of
the Powers was enough to bedevil everything. If there had to be
European reforms, if 'nations' were going to be built up, there was
only one way by which these operations could prove beneficial and
not catastrophic. It was for Europe itself to administer them and
carryr them through. This proved impossible, either because of the
rivalries of the Powers or because such a course was rejected by
Europeans as imperialistic and immoral, or, finally, because of that
failure of nerve and morality which made attractive the exercise of
power and influence without responsibility.
The fate of minorities such as the Armenians or the Jews of Iraq
is merely an extreme result of the turmoil introduced by the west in
the east. But even where the results are not so extreme and final, the
condition of the east is today pitiful enough. From the west there can
be no escape: the Armenians tried to emulate its political ways, the
Jews of Iraq trieil to ignore them. For both disaster lay in wait.
What can be said of these, can also be said of other groups and of the
other western innovations, economic or cultural, to which they must
submit. They are all delivered over into the power of the legions of
ill-will abroad in the world. The dangers are manifold; the remedies
scant and impotent.

316
 II

Religion and Politics

It is a well-known feature of Palestinian politics during the mandate

that the Christians - of whom the great majority were Orthodox -
seemed to make common cause with the Muslims in the struggle
against Zionism. They, or at least the leaders who claimed to speak in
their name, asserted that both Muslims and Christians were part of
the Arab nation, and that this fact made their solidarity natural and
inevitable.
The circumstances of Palestine under the mandate were, of course,
exceptional, placing a small religious minority, anxious to survive
unscathed, in quite a difficult position; and it is possible to argue that
expediency and prudence made identification with the majority
attractive. But it was quite late in the history of the mandate before
it became finally apparent that the mandatory had decided no longer
to advance Zionist interests at the price of Arab antagonism. Until
1939 or thereabouts expediency might also have counselled a measure,
at least, of acquiescence in British policy, and in Zionist expansion,
seeing that the British were the masters in Palestine and that the
prudent have a lively respect for their masters. But the articulate
leaders of the Orthodox Christian community never deviated in the
least from the Muslim line in Palestine. Their policy did not seem
dictated by expediency. On the contrary, shrewd and experienced
observers remarked more than once on the fervent commitment of
Orthodox Christians to the ideals of Arab nationalism, and their
whole-hearted involvement in the nationalist struggle. Thus, in 1926,
Bertram and Young, reporting on the controversies opposing the
patriarchate and the Orthodox laity, said with accents of conviction:
National consciousness is not a matter of what ought to be felt, but of
what actually is felt. No amount of eloquent reasoning could persuade
the inhabitants of Alsace-Lorraine that their true national consciousness
is German. Similarly no amount of such reasoning would persuade the
3r7
 THE CHATHAM HOUSE VERSION
Orthodox congregation of Palestine that they are not Arabs . . . The
dearest thought of every young local Orthodox Christian is that he is an
Arab, and his most cherished aspirations are those of Arab nationalism,
which he shares with his Moslem fellow-countrymen.r

Some ten years later Professor Hancock, visiting Palestine, was also
struck by the seeming solidarity of Muslim and Christian.
The British government [he writes] had taken over the Turkish tradi-
tion of classifying the population of Palestine by confessional allegiance;
The categories under which the census officials grouped their figures of
births and deaths, immigration and emigration, employment, education
and the rest were: Jews, Moslems, Christians, Others. This classification
6tted the facts of Jewish solidarity and on the Zionist side was in effect
a classifcation by nationality; but it completely ignored the national
solidarity which on the Arab side was transcending the old distinction
between Moslem and Christian.r

To the outside world this solidarity was illustrated by the career

of George Antonius, an Orthodox Christian, who resigned from a high
post in the mandatory administration in protest against British
policies, and then wrote The Arab Awahening, the most eloquent,
able and influential exposition of Arab nationalist claims that has so
far been written. And there were other Orthodox Christians, less well
known outside Syria and Palestine but quite prominent in their own
community and in the nationalist movement, men such as Rafiq
Rizq Sallum, the Orthodox lawyer from Homs who had been intended
for the priesthood but who deserted the Orthodox seminary at
Belmont for the Syrian Protestant College at Beirut and the Imperial
Law College at Istanbul, became an Arab nationalist and was hanged
by Jamal Pasha at Damascus in r9r5;8 men also such as'Issa al-'Issa,
editor of the Jafia newspaper Filastin, and a member of the Nasha-
shibi faction which went under the title of The National Defence
Party; Ya'qub Faraj, president of the Arab Orthodox Executive
Committee, a prominent member ol The Muslimlhristian Society
which operated in the early days of British administration, and later
one of the nine members of the Arab Higher Executive Committee
set up in 1936 under the mufti's chairmanshiPi or his cousin Khalil
Sakakini, at one time secretary of the executive committee of the
Arab Congress of Palestina which functioned in the rgzos, and for
many years a high official in the Palestine Education DePartment,
whose diary, published posthumously a few years ago, affords striking

3r8
 RELIGION AND POLITICS
evidence of the state of mind of the educated class of his community
and generation.{
And yet, the unanimous witnesses, the emphatic declarationq the
clear commitment are not enough to banish all puzzlement. These
orthodox christians, living for centuries under the dominance and
on the fringes of Muslim society, are suddenly found asserting that
they are no mere political minority but part and parcel of the Arab
nation, equally entitled with the Muslims, should this nation achieve
sovereignty, to the exercise of political power. The reactions of the
Muslimi to such claims, should it be attempted seriously to make
them good, we may leave on one side, for the habit of power stoutly
held for centuries would enable them to deal with these easily and
confidently. The situation of the orthodox themselves is more diffi-
cult and more interesting. In order to convince themselves - if not
others - that they formed part of the Arab nation they would have
to reject what had governed the social arrangements of their com-
*rrrrity for countless generations and provided a sense of identity
with their fathers and fathers' fathers' In the past they had been
members of a religious community, and this membership at once
defined their status and set the bounds of their public as of their
private activity. Loyalty did not extend beyond the community, and
traffic between communities was confined to an inescapable minimum
of externals. But now this religion suddenly seemed a badge of
servitude. Membership of the Arab nation had a price - which
Muslims, being the majority and the rulers, did not have to pay' It
meant the abandonment of communal organisation and the defiant
assertion that religion was a strictly private affair, that it could not
be the constitutive principle of a society, that it had no political and
little social significance. This radical change of view in a matter so
intimate and so fundamental came abruptly, and if only because
abrupt, it must also have been violent, creating schism and discord
within the community. When, therefore, outside observers reported
the solidarity of Christians with Muslims, were they not perhaps un-
wittingly echoing the claims and professions of the victorious party
in a species of civil war which had raged inside the orthodox christian
community?
Such a view is supported by the experience which similar com-
munities underwent as a result of the sudden impact of new theo-
logical and political ideas imported from outside. The Armenian
nationalists, for instance, seeking to transform the Armenian
319
 THE CHATHAM HOUSE VERSION
community of the ottoman empire into a European nation state,
in establishing hegemony among their people only after a
succeeded
sanguinary struggle with other Armenians who opposed these ambi_
tions, and who were inclined to achieve some compromise with the
ottoman authorities. And before the Zionists could become a power-
ful party among the eastern European Jews they had to surmount the
formidable and relentless opposition of the religious and secular
leaders of their communities. strife was undoubtedly embittered by
the intrusive character of the new ideas. They did not arise within
the communities they affected so profoundly but were brought in
from the outside with superior airs. The supporters of the old trder,
considering these notions the invention of misguided unbelievers or
diabolical persecutors, rejected them with horror and never attemp-
ted to discriminate between innovations which they courd accept and
those which they had to reject. Those who were attracted to them
therefore became easily disafiected and were forced into radical
attitudes and uncompromising postures.
It is interesting to notice that such strife, and the extremism it en-
gendered, never seriously affected the Maronite community. Can the
cause be the Maronite connection with the Roman catholic church,
so alive to European intellectual currents and so skilled and expe-
rienced in shielding its charges from disruptive influences? For
outsiders were not left alone to introduce the Maronites to European
ideas and methods; these were mediated through the educational
enterprise of Roman catholic orders, who would naturany exert all
their efiorts to combat the notion that modernity and rerigion were
hopelessly opposed, and that modernity was necessarily superior.
But even among the Maronites things could easily have been quite
different. In r8z5 American Protestant missionaries came to Beirut
and attempted to gain converts among the local christian population.
The Maronite patriarch reacted strongly to their activities and issued
two manifestos, first in r8z4 and again in t8zg, ordering the members
of his community to avoid all contact with them, whether in religious
or temporal matters. Nobody was to handle their publications or
attend their prayer meetings or frequent their schools or take service
or have financial relations with them. 'Let them hereby,, said the
patriarch in his second manifesto, 'be excluded from all christian
society; let the curse cover them as a garment and sink into their
members as an oil and make them wither as the fig-tree which the
mouth of the Lord has cursed; the evil spirit shall also take posses-
320
 RELIGION AND POLITICS
sion of them, torturing them day and mght; no one shall visit or
greet them.' Disobedience led to excommunication.6 A young
.Maronite, As'ad al-Shidiaq, publicly embraced the teachings of the
missionaries. He now declared that he had never before been 'a
believer, according to the living true faith', that 'it would be but a lie
if I should say I believed as the Romish Church does' and that 'by
reason, and learning, and prayer to God, with purity of motive, we
may know from the holy Scripture everything necessary to our salva-
tion'. The religion in which he had been brought up, he now became
persuaded, was hopelessly sunk in superstition and comrption'B
Eventually, the patriarch had As'ad imprisoned at his seat where he
died shortly afterwards. His youngest brother, Faris, was also
attracted to the missionaries' doctrine and became fond, as the
Maronite bishop of Beirut put it, of reasoning on the subject of
religion. His family disapproved greatly of his behaviour, the more
so that they feared it might influence his brother As'ad's fate for the
worse, and he clashed with his eldest brother, Mansur. He fled to the
missionaries, declaring that 'I will either go to a place in this country
where I can enjoy my liberty, or I will take ship and leave the country
altogether'. The missionaries put Faris aboard a ship for Malta and
employed him at their printing Press there.T He became a famous
Arabic writer, ended by embracing Islam, and died a pensioner of the
sultan and a notable advocate of his pan-Islamic pretensions' His
best-known work, a curious autobiography, contains a sustained
diatribe descending at times to obscenity and foul language, against
the hypocrisy and cupidity of the Maronite clergy' In a passage
bemoaning the misfortune of his brother, he says to the Maronite
hierarchy: 'And even if my brother discussed religion controversially,
and said that you were mistaken, you had no right to kill him for
this.'8
Among the Maronites, Faris al-Shidiaq was not the only one to
rebel against his religion and community. There was also the writer
Adib Ishaq (1856-35) who, when he died in Beirut, was refused a
catholic burial. He was outspoken and intemperate in denouncing the
clerical power in the east, but seemed to attribute its cormption to
western example.e Towards the end of the nineteenth century and the
beginning of the twentieth anti-clericalism (allied with free-
masonry) in fact knew some vogue among educated Maronites in
Lebanon and in America.ro The most famous example of this anti-
clericalism was that of the writer Amin al-Rayhani (1876-194o)'
32r
 THE CHATHAM HOUSE VERSION
Rayhani went to the United States as a boy of thirteen, and it was
there in fact that he began his literary career, with an onslaught on
religious dogma and institutions. In r9o3 he published a satire,
al-Muhal,aJa al-thulathiyya f,' l, mamlaka al-hayawaniyya (The Triple
ALliarce in the Animal, Kingd,om). which he followed a year later by
another diatribe al-Mahari wa'l hahin (Thc Muleteer anil, the priest).
In the first of these works he pictures the clergy in the guise of an
ass, a mule and a horse. These three animals are challenged by a fox
who denounces the superstitions which they purvey in order to resist
the march of progress and preserve their power over their followers:
'I do not believe in your God,' he exclaims, 'I hate your Jehovah, I
recognise no authority, and I absolutely deny your allegation that
God Almighty has given you authority over us.' The three animals,
thus challenged, kill the fox, who becomes a martyr to his beliefs;
but shortly afterwards they themselves are overtaken and run over
by a railway train, that symbol of progress.u The Muleteer and, the
Priesttakes up the theme with virulence. A muleteer of the Lebanese
mountains is made anti-clerical by his experience of oppression and
deceit at the hands of the clergy. While on a journey in a carriage
from Beirut to the mountain, he meets a Maronite priest as a fellow-
passenger and he proceeds to harangue him: 'You vow,' he tells him,
'the three vows of obedience, chastity, and poverty. These are the
vows which are known to the people. But you also take a fourth vow,
and you take it in secret. You then take the vow that you will not be
bound by your vows.' The priest is converted by the muleteer,s
cogency and eloquence; he writes to his son, who is studying theology
at Rome, to give up the priesthood which God's book does not
sanction, and that the church is an invention by means of which its
heads are able to accumulate wealth. He abandons his parish and
takes up an itinerant life, preaching the new tidings in company with
the muleteer. In a final episode recalling As'ad al-Shidiaq's fate, the
patriarch has him imprisoned in a monastery on the pretext that he is
a madman, where he is beaten by the monks and finally dies.la
In a letter to a friend from this period, Amin Rayhani declares that
'the Syrian people had hitherto been the anvil silently receiving the
blows of the clerical hammer'.r8 It was to deliver them at last from
this fate that the young Amin embarked on this campaign which
exposed him to the bitter hostility of the Maronite and Catholic
clergy.l{ But what did he have to offer in place of this superstition?
He offered a slmcretism or perhaps a natural religion which men
322
 RELIGION AND POLITICS
should recognise as common to them all, a belief free of dogma and
unencumbered with the specific and the positive. He wanted his
fellow Syrians to become what he himself claimed to be, Christian
with the Gospels and Muslim with the Koran. Fanaticism would then
disappear and the Syrians would be launched on the road of progress
and prosperity. As he wrote to a correspondent:
I have no doubt that the Muslim who loves a Christian and would
marry her, or the Christian who loves a Muslim and would marry her, is
so elevated in his morals, his intellect and his behaviour that he may
neglect some - or many - of the traditions of his kin and people. ' ' ' I
consider [he went on] that inter-marriage today between the two Sroups
is one of the most important conditions for our reform and progress' The
social and religious toleration which will grow in a home composed of
these two elements is the only remedy for all our religious and social ills;
nay, it is the elixir of our new life.
As for the children who will be the fruit of this marriage, the question
of teaching them religious principles is simple. Let them read something
from the Gospel and the Koran . . ' and let them sometimes go to this and
sometimes to that place of worship until they reach their majority' They
will then have the freedom of worshipping as they choose and may pray
wherever their reason and their conscience directs,lo

His fellow Maronite, the writer Marun Abbud (1886-1962), subscribed

to something like these beliefs and called one of his sons Muhammad'
Amin al-Rayhani congratulates him on this gesture and writes that if
the Muslims, the Druzes and the Jews were to follow his example a
neti\r generation of brethren - of true brethren - would arise in the
country who outside their places of worship would not be able to
distinguish between Christian and Muslim and Jew.10
But this natural and universal religion was not as easy and rational
as it seemed on the surface. Consider Marun Abbud who, in the cause
of religious amity, had named one of his sons Muhammad. His friendly
feelings towards Islam had also, and characteristically, been preceded
by a clash with his own religious authorities.u In 1934 he published a
poem in celebration of the Prophet Muhammad in which he is praised
for unifying a nation divided by religious fanaticism. The poet
deplores religious divisions, for what difierence can there be between
Marun (a Christian name) and Marwan (a Muslim name)? And he
goes on to declaim: 'Let the generations bow in reverence whenever
ihe Most pure prophet from Adnan is mentioned, who has filled the
world with the name of God and has called the People of the earth to
323
 THE CHATHAM HOUSE VERSION
unity. Let the fanatics go on croaking; the bird of paradise is not
harmed by the mouthings of the crows.'rs It would seem, then, that
in this new universal religion a privileged place is accorded to Islam
and its Prophet. The reason, we may suspect, is that in abjuring the
tradition of their community as superstitious and divisive, in refusing
to be identified as Maronites, men like Marun Abbud and Amin al-
Rayhani find that they have to seek a new identity for themselves,
and that the syncretistic universalism which they preach cannot
readily supply this identity. If their slmcretism had not precluded
them from it they would have perhaps gladly identified themselves
as Muslims and taken their place within a dominant, self-confident
group. For them, not so much Islam as a system of belief, but the
Muslim community as a powerful and cohesive group, exercised a
tremendous fascination. It is this fascination which may explain
Marun Abbud's poem in praise of the Prophet, and a statement such
as this by Rayhani:
The Muslims are more devoted in their patriotism and have a sounder
view of it than the Christians. They demand complete independence
without a mandate or similar pretexts. This is absolutely clear. The
Christians, on the other hand, invoke patriotism but ask for an incomplete
independence which is supervised by this or that power. The Christian
minority will, it seems, remain a minority and will diminish daily owing
to emigration, while the Muslim majority will remain a majority. The
Christians, therefore, will remain in need of protection, and permanent
protection is imperialism.re

Christianity, then, is not only superstition and comrption, it is

also an instrument of imperialism. Were it possible to find an Islam
without dogmas it would surely provide an escape from it. And
providentially, after the first world war such an Islam came to hand.
For Rayhani and those who thought like him it was known as
Arabism, and it was Arabism which came to provide for them a new
identity in place of the traditional one which they had discarded.
Characteristically, just as the rejection of the Maronite tradition was
the outcome of exposure to western thought, so Arabism also was
drawn from western literature. Rayhani tells us that when he left
the Lebanon as a boy, in his breast was fear of those whose language
he spoke and hatred for them some of whose blood flowed in his
veins. In the New World he came across Carlyle's essay on Muhammad
in Heroes and, Hero-Worshif 'and I felt for the first time some love
for the Arabs and became inclined to seek out more of their history,.
324
 RELIGION AND POLITICS
He then discovered Washington Irving's book on the Alhambra and
began to dream of the ancient Arab glories. He sought out orientalist
works in the New York Public Library and found in them 'poetry,
prophecy; the desert oases in oceans of sands, and the date-trees in
the oases, through the branches of which whispers the breeze and the
trunks of which are shaken by the hot desert wind'. He also finds in
them'the voice of the sdqiyazo singing to the blessed earth under the
shade of the date-trees and the Beduin girl singing to the camel of
the sidqiya' .Thishe finds in the books in the New York Public Library-
an enchantment which removes him utterly from the drabness of this
bustling and crowded city where he had to earn his keep by balancing
the books of his uncle's export-import business.zl It was this western
exoticism which at length provided a new identity for Rayhani and
made of him an Arab nationalist preaching that the Maronite, the
Druze, the Shi'ite and the Sunni had to forget that they were Maronite,
Druze, Shi'ite or Sunni and to remember only that they were Arab:
'Arabism brings us together', he exclaims, 'Arabism unites us'.
Arabism it is which creates that strength which the Europeans
respect, a strength which can never be defeated or brought low.22
They all had to forget their particular identity but, we may suspect,
not all equally. It is the Maronite and other non-Muslims who had to
forget most, who had, as Rayhani put it in his political testament
written in r93r, so to unite with the Arabs, so to coalesce with them
intellectually, morally and spiritually that no majority or minority
would subsist.s3 On a visit to Ibn Sa'ud he proclaimed that if the
Arab cause required him to become a Wahabi, he would become one;
it is quite inconceivable that he should demand reciprocity, that if the
Ibn Sa'ud to become a Christian,
necessities of the Arab cause required
then he should become one. He is terribly flattered that Ibn Sa'ud
should describe him as a 'true Arab' and seems unconscious of the
king's patronising attitude when he continued: 'He is more devoted
to the Arabs than the Arabs themselves, and nobler than many
Muslims.'24
In rebelling against his community and religion and finally be-
coming a Muslim and an advocate of pan-Islam, Faris al-Shidiaq
was very much the exception in his generation. So on the whole were
Adib Ishaq, Amin al-Rayhani and Marun Abbud in their rebellions
and in the cause which they chose in substitution for their ancestral
faith.25 Different circumstances made this kind of rebellion in other
communities more common and more effective. This was the case in
325
 THE CHATHAM HOUSE VERSION
the Orthodox Christian community in Palestine. Its situation was
peculiar enough. The patriarchate of Jerusalem, like its neighbour to
the north, the patriarchate of Antioch, was composed mainly of an
Arabic-speaking laity. But in'both patriarchates the clergy, with the
exception of the village priests, was Greek. In Jerusalem, the patriarch
- holding, as usual in the Ottoman empire, both temporal and spiritual
power - together with the metropolitan, bishops and archimandrites,
was always recruited from the Brotherhood of the Holy Sepulchre,
an old monastic order but which under its modern constitution dates
from t66z.2e The order was a closed corporation. The patriarch was
ex offrcio president of the Brotherhood and it admitted none but
Greeks to its membership. On entering the order the members took
the vows of obedience and chastity but not the vow of poverty. They
were paid salaries and they could hold property which, however, if
immovable, reverted on their death to the Brotherhood.zz The
Brotherhood was rich and disposed of important revenues derived
from bequests left by the pious in Russia, the Balkans and the
Ottoman empire, and from the donations of Orthodox pilgrims to the
Holy Places. As for the parish priests, their position was quite
wretched. They were drawn from the Arabic-speaking laity, they
had little education and received very little pay. An observer writing
before the first world war remarked that though there existed an
Orthodox theological college in Jerusalem, the natives, with one or
two exceptions, were excluded from it. The parish priests, he re-
ported, were paid for Sunday Masses from church funds at a rate
varying from zo to 8z cents, and received similar fees from the faith-
ful for baptisms, marriages and funerals. These priests were not
properly recruited, their position in many cases being quasi-heredi-
tary, and it was not unusual to see different clans in the village using
the services of different priests.2E This situation seems to have con-
tinued much the same after the war, for a subsequent writer also
remarked on the paucity of their knowledge as of their income.ze
The patriarch was not only the spiritual head of his community. On
him also devolved - or should have devolved - responsibility for its
temporal welfare, for the Ottoman government provided neither
education nor medical services nor care for the old. Such services
were a communal responsibility and in Jerusalem their provision was
elementary; here again, the patriarch and the Brotherhood of the
Holy Sepulchre could with justice be convicted of neglecting their
pastoral duties. When these shortcomings were later brought vehe-
326
 RELIGION AND POLITICS
mently to their notice, they argued that the patriarchate of Jerusalem
was not like other sees; in Jerusalem, they said, their first duty was to
guard and maintain the Holy Places, for which they were responsible
to the whole of Orthodoxy. Pastoral care took second place, and in
any case the Greek Orthodox population of Palestine contributed
nothing to the upkeep of the see; whatever the patriarchate spent on
them came from the bounty of the Orthodox world, and they had no
right to question the actions of the patriarch or to demand accounts.
This situation, potential in estrangements and conflicts, began to
be exploited by Russia in the nineteenth century. Ever since the
treaty of Kutchuk Kainardja of q74 Russia had been trying to
penetrate the Ottoman empire and establish therein a position of
influence and dominance; and she found the Orthodox populations
of the empire useful in furthering these desigas. In r84z a Russian
archimandrite, Porphyr Uspensky, whom Bertram and Young
describe as an 'ecclesiastic of peculiar propensities',80 was established
in Jerusalem and continued there a number of years, ostensibly
to look after the needs of Russian pilgrims. But it is clear that he also
worked to advance Russian political interests,sl and to this end strove
to establish a following among the local population. He set himself
up as their champion and espoused their grievances against the
patriarchate. His reputation in this respect became legendary.
Witness the stand he is made to take against the Greeks, in an anti-
Greek pamphlet published in Arabic in 1893:
'Your priests', says Uspensky to the patriarchal delegate, 'your priests
are ignorant of their duties. . . . Instead of instructing and training them
when they come to see you, you spurn them like vile slaves. When they
knock at the gates of the patriarchate, imploring you in the name of our
holy ancestors, your answer is "Get out of here, take yourselves off".'
The Greek is made to say: 'We do not allow Arab priests to approach
Us because this would derogate from Our episcopal dignity. As for their
requests, the dragoman acquaints Us with them.'
Uspensky: 'This is the first time in my life that I hear it said that the
approach of a priest is derogatory to episcopal dignity. My lord, what
mean these words?'
Greek: 'We do not understand their language.'
Uspensky: 'Why not learn it? But let it be! Your age may no longer
make it possible for you to study the language of the country. But why
not allow the dragoman to set out the requests of the native priests in
their own presence?'
Greek: 'This is impossible! We cannot introduce new customs.'rt
327
 THE CHATHAM HOUSE VERSION
With Russian help, then, the grievances of the laity and the lower
clergy against the patriarchate became crystallised as the grievances
of Arabs against Greeks. In 1873, after Uspensky's departure from
Jerusalem, the patriarch Cyril was deposed by the Jerusalem synod
for siding with Russia against the patriarchate of Constantinople on
the issue of the autocephaly of the Bulgarian Church. Russia was
able to get up an agitation among the local people against his dis-
missal. Bertram and Young quote a pamphlet published on that
occasion'under Russian influences' which accuses the'Greek element',
lazy and turbulent priests, of monopolising the riches of the see of
Jerusalem, which really belong to the whole of Orthodoxy; 'as for
the natives', the pamphlet adds, 'they may well be compared to that
poor Lazarus of the Gospels, who was laid at the rich man's gate and
who desired to be fed with the crumbs which fell from his table (St.
Luke, XVI, rg-2r).'ss Russia's championship of the native laity
became most manifest in the see of Antioch in the r89os when, with
her pressure and diplomatic support, the Greek clergy were finally
ousted from the see by a coup d,'itat and Arab clergy replaced them.sa
As time went on, Russia worked powerfully and methodically to
strengthen her influence in the Levant. After the Crimean war a
consul-general in Jerusalem seconded with his authority the efforts
of the resident archimandrite; and in r88z the Imperial Orthodox
Palestine Society began its operations. This society, whose patron was
the tsar himself and whose president was a grand duke, was founded
to look after the needs of the Russian pilgrims in the Holy Land and
to set up hostels and hospitals for them. But it soon acquired other
functions. It began to open schools and to train locally teachers for
the native Orthodox population. In 1886 a women's teachers'training
college was opened at Beit-Jala, in 1889 a men's college at Nazareth.
By 1898 over six thousand five hundred pupils were in attendance at
the society's schools; by rgtz there were eleven thousand of them in
more than a hundred schools and the society's expenditure amounted
to 336,ooo roubles.s6
It is difficult to imagine nowadays the effect which such attentive
solicitude had on the local Orthodox communities; what feelings of
security and of pride were evoked in them by this tangible evidence
of Russian care and protection, what vast horizons these schools
opened and what new possibilities they conjured up in these hitherto
neglected and almost forgotten communities. In his notable auto-
biography, Seaentjt Years, the well-known Lebanese writer Mikha'il
328
 RELIGION AND POLITICS
Nu'ayma describes for us his education as it began in a primary
school founded and maintained in his village of Baskinta by the
Imperial Orthodox Palestine Society, how it continued in the college
of Nazareth, also at the expense of the society, and how excellence
in his studies there took him on a scholarship awarded by the society
to the seminary at Poltava. As he begins his chapter on the Baskinta
school which opened in 1899,
'Muscovy' became in our vernacular 'Maskoby' and Russia came to be
known among us as the 'country of the Miskub'.
'The Miskub is coming to open a school in Baskintal May God give him
victory!'
The neu's spread in the village as light spreads at dawn. The Orthodox
community received it with songs of praise and glorification' And no
wonder! It was something taken for granted among the inhabitants of the
Lebanon in the era ol ltre Mustasanifiyyo that Russia rvas the tradi-
tional protector of the Rum, France of the Maronites, Britain of the
Protestants and the Druzes and Turkey of the Muslims' But Russia
pushed her rivalry so far that she began opening free schools for the
Rum in Palestine, Syria and the Lebanon, schools the curricula and
administration of which were of the latest model. It made no condition on
any Orthodox community which desired to have a school except it should
provide a suitable building. As for the teachers, the books, the exercise
books, the ink, the pencils, the furniture, the salaries and the administra-
tive expenses, they were all free. . . . For the first time in its history
Baskinta knew what may be called a model school. For the fi,rst time in its
history its girts began to study on an equality with the boys. The school
had five school-masters and three school-mistresses presided over by a
headmaster who had graduated from the Russian teachers' training
college in Nazareth and studied pedagogy and educational administra-
tion, For the first time we felt we were in a school which had a curriculum
and which was orderly.so

Of course it was not the aim of the Russians to estrange the Ortho-
dox of Palestine from their religion. They desired merely to estrange
them from their religious superiors. But there was no way of circum-
scribing disaffection or of attacking persons without undermining
institutions. We may illustrate this by an example from Nu'ayma's
autobiography. Nu'ayma dwells at length on the official adulation of
the Ottoman sultan and the Russian tsar which was inculcated in the
establishments of the Imperial Orthodox Palestine Society - the
first surely a matter of prudence and policy, while the second was
clearly the expression of affection and loyalty. Yet he also recounts
329
 THE CHATHAM HOUSE VERSION
that in the college at Nazareth, one of the teachers he most admired,
Antun Ballan from Homs who had studied in Russia
was the flrst who wakened patriotic feeling in us. Whenever the oppor-
tunity offered, he used to tell us of the misery of our country under the
Turkish yoke, of Abd al-Hamid's despotism, the crimes of the Bosphorus,
the corruption rampant in the departments of the state from the sultan
dorvn to the lowest muhhtu in the most insignif,cant village. If therefore
the Arabs desired a life of some honour and independence, they had to
regain possession of their lands and their stolen liberties; and the Muslims
among them had to take back the usurped caliphate, since the caliphate
belongs exclusively to the Arabs.8?
It may be true that what came at the hands of the Russians was
anfvay inevitable, and would have been accomplished at others'
hands; that the unbending obscurantism of the hierarchy and their
foolish contempt for their pastoral charges would sooner or later
have led to an explosion. But the fact remains that it was principally
Russian action on a young generation of Palestinian Orthodox which
led the way to further developments, and that it was Russian efiorts
which made the quarrel between laity and clergy a definite and
inevitable quarrel between Arabs and Greeks. A new generation grew
up, bitter at the pitiful spectacle of their community, resentful of the
corrupt hierarchy which ruled them, contemptuous of their spiritual
directors and convinced that only a radical parting with tradition
would ameliorate their condition. Tradition was mute or gave a
hateful sound; and therefore abstract principles, brought to them by
missionaries and educators, had to replace and do the work of tradi-
tion. The younger generation were men of principles, and that they
were young and in revolt against the old only made their radicalism
more radical. Finally, this radicalism became a built-in political
attitude because these men of principles had nothing but principles.
They did not claim authority on behalf of classes and interests, but
because they were educated men and knew the right answers. They
were lawyers or school-teachers in a society where such occupations
were meagrely and precariously rewarded and those who followed
them little respected. For instance, again and again in hrs Diary
Khalil Sakakini complains of financial insecurity and the low stand-
ing of his profession. 'Shall I', he writes while on a visit to America,
'go back to my native land, go back to teaching in schools and private
houses, to witness every day such painful sights that my life becomes
a hell?'88 He decides to go back, and a few months later we find him

330
 RELIGION AND POLITICS
in Jerusalem complaining: 'I wish I could find work iu Jerusalem,
but how is this to be done since I am Orthodox? The English bishop
wants me to put on clerical dress, to accomPany the pupils to Church
and read the Bible: the Church Missionary Society wants me to be-
come a missionary, and I can do neither.'30 The passage of the years
does not seem to improve his condition. In r9r9 his finances are as
precarious as ever. 'It is a long time now', he writes in April :9r9,
'that my pocket is empty and I possess nothing. We live on our
provisions at home. I borrowed a quarter of a lira today ' ' .'40. Ife
gives Arabic lessons to British officers, and one day earns twenty-
five shillings from these lessons:'This', he writes,'is the highest
income per day I have earned in twenty-five years of teaching''ar
And all the while, whether under the Ottoman or the British regime,
he is at the forefront of radical agitation.
The ferment created by the Young Turk Revolution gave the new
men their opportunity. Article III of the Ottoman constitution, re-
stored in July r9o8, made provision for the setting up of local
communal councils to supervise the administration of communal
property and the use of revenue therefrom. In September r9o8 a
delegation of priests and la5rmen, basing itself on this Article, an-
nounced to the patriarch that a communal council had been formed
to control the finances of the patriarchate. The Brotherhood of the
Holy Sepulchre vehemently rejected this, whereupon meetings,
demonstrations and riots against the Greeks took place in Jerusalem
and elsewhere and Greek monks were ousted from monasteries.{z
The Ottoman government had to interpose itself between the
contending parties. It appointed a commission to investigate the
dispute and engaged in patient negotiation, inducing the parties to
accept the compromise of a mixed council, composed half of laymen
and half of clergymen, to supervise certain departments of patriarchal
activity.{3
The outlook of the leaders of the revolt against the patriarchate is
illustrated by Sakakini's Diary. When the Young Turks came to
power, Sakakini returned to Jerusalem from America, whither he had
gone to engage in business, to earn a living less precarious than
school-teaching offered. The journey was not a success, and he came
back confirmed in the moral superiority of education over mere
practical skills. 'Commerce,' he wrote, 'requires capital, and nobody
will succeed in it unless he relies on deceit, trickery and similar
practices to which I would sooner prefer death by hunger.'aa He was
33r
 THE CHATHAM HOUSE VERSION
indeed prepared to concede that in western countries wealth might be
the reward of competence and poverty the sign of incapacity, but in
Palestine poverty was almost a badge of honour, a cause for pride,
a token of dignity and self-respect,rE In his eyes, then, and in the
eyes of those like him, the Young Turk Revolution appeared as a
great deliverance from the small, mean, constricted world in which
their education and their ideals were mocked and misunderstood.
'Now,' he exclaimed when the constitution was announced, 'now I
can serve my country. Now I can found a school, a newspaper, and
societies for Youth. Now we can lift up our voices without impedi-
ment.'16 These voices were soon raised against the patriarchate.
'We are rid of the tyranny of the government,' proclaimed Sakakini,
'but that of the spiritual authority still remains.'|? He became a
leader in the struggle; he organised meetings and processions, sent
emissaries to other communities in Palestine, drafted petitions to the
Government, and argued with the patriarchate. When the patriarch
Damianos, who had shown himself somewhat conciliatory towards the
native community, was deposed by the Brotherhood, Sakakini was
elected as a member of a delegation which went to Istanbul in
January r9o9 to protest against the deposition.a8 He even imagined,
rightly or wrongly, that he was being personally persecuted for his
activities. When, a few years afterwards, in t9tz, he wanted to marry,
no priest in Jerusalem was willing to ofrciate, all alleging that the
proposed marriage was within the prohibited degrees. Sakakini
attributed this to the malice of the patriarchate and went off to
Jaffa where a priest was found to perform the ceremony.a0 His atti-
tude to the struggle was characteristic: its object was not to obtain
concessions but to vindicate principles. From the very beginning he
was afraid that his associates might be tempted and corrupted by
concessions regarding schools, hospitals, the training of priests, and
similar matters, which after all constituted the substance of the
community's grievance against the hierarchy. 'f noticed,' he wrote in
September r9o8, 'that . . . members of the committee preferred to
give their attention to questions affecting schools, hospitals, the
Church (and other financial matters), and I became afraid that this
might distract the community from pursuing its other rights.'oo
When, a few years later, the excitement died down and the con-
testants settled down again to a kind of acrimonious and suspicious
intercourse. Sakakini decided to announce his abandonment of the
reform movement end his secession from the Church: 'My soul
332
 RELIGION AND POLITICS
revolted', he records, 'and I saw that I could not stay any longer in
the Orthodox community. f cannot stay under the authority of these
corrupt and degenerate priests; I cannot be a member of this de-
generate community. I cannot . ' . I am not Orthodoxl I am not
Orthodoxl'6l He had decided that the case of the Church was hope-
less, that it was not to be reformed, that secession was the only step
practicable. Hatred and contempt manifest themselves not only for
the Greek hierarchy, but for the rites, traditions and religious life of
the Orthodox community.
Anyone who stands at the gates of a church [reads an entry in r9r8]
will not think himself standing at a place of worship. He will see children
playing gaily in the churchyard; he will see bands of young men here
and there exchanging jokes and pleasantries as though at a party or a
circus or a dance-hall. ... The candles, the incense, the chanting, the
beauty of the vestments merely awaken feelings of joy and approbation,
nay, feelings of love and desire. This is perhaps a survival in the Orthodox
Church of traces of ancient Greek religion, of the worship of Bacchus, the
God of Wine. I wrote on this subject at the time of the Orthodox awaken-
ing, which greatly agitated the priests of the Jerusalem patriarchate, and
impelled the patriarch to publish an official notice excommunicating me
and warning the community against frequenting me and listening to my
opinions.6t

The dislocation, as may be seen, is radical. Sakakini broke violently

loose from the beliefs of his community, repudiated its manner of
life and rejected what practical wisdom it had accumulated in its
long history as a minority under Islam. No doubt the heritage was
poor, and to have seen what western civilisation could offer was
enough to justify intellectual rebellion. But in Sakakini's case, as in
that of his friends and contemPoraries, the rebellion itself was a poor
affair, fervent no doubt, but disoriented and undiscriminating. These
men of principles who claimed the leadership of their community,
clutched now at this, now at that principle, and ended by involving
themselves in a style of politics as devoid of charity as of principle.
'I am,' exclaims Sakakini, 'neither a Christian, nor a Buddhist, nor a
Muslim, nor a Jew. I am neither an Arab, nor a Frenchman, nor a
German, nor a Turk. I am a member of humanity . . ..'68 'You,' he
tells a missionary, 'derive your principles from Revelation, accepting
them without scrutiny, while I derive them from myself, my mind,
and my daily life and experience.'!{ These principles fluctuated
alarmingly. One day he adt'ises his son to be a pacifist, and three days
333
 THE CHATHAM HOUSE VERSION
later he exclaims, 'Powerl Powert This is the new gospel which we
must spread. He who is stronger in body, mind and spirit has a greater
right to exist than he who is weak. . . . The strong shall inherit the
earth'. And he again advises his son to adopt this 'philosophy'.0r
Traditional lore and learning is thus rejected, and an eager, incoherent
grasping at the latest novelty takes its place.
This is best illustrated by Sakakini's attitude to Judaism. Estrange-
ment and mistrust are of course the traditional attitudes of the
different religious communities in the middle east towards one
another. But these traditional attitudes were never complicated by
the kind of doctrinaire refinements which accompany modern
European anti-semitism. And much of these traditional attitudes
have survived in and may be illustrated in Muslim writings about
Zionism. These writings provide an ambiguous picture of admiration
and contempt, of attraction and repulsion. Jews are cowardly, yet
an example of courage; they are the scum of the earth, yet worthy of
imitation in their social arrangements; Jewesses, with uncovered
faces, arms and legs, are infinitely attractive, yet an unholy tempta-
tion to believers. Take a book on Zionism written by two Muslim
journalists for a popular audience and choose almost at random one
of the many luscious descriptions of Jewish girls:

Here is a girl from Hungary, her face radiant with fascination and
allurement, that sex appeal, which the male sex dreams of, flowing from
her body. She is in conversation with trvo companions, legs crossed,
slightly leaning back, so that her skirt gives a glimpse of glittering lights
and cool, firm flesh . . . And here is agazelle. . . langorously lying on the
rocks . . . intimating the softness and the yielding firmness of the flesh of
the daughters of Eve.

And yet their admiration for the modesty, neatness and discretion
of women going about the streets is also unbounded. They contrast
them to thelazy, useless, heavily-made-up wives of Damascus. They
present an idyllic picture of family life among the Jews:

Outside the house there was a white cot, covered with a white, clean,
billowing mosquito-net. fnside was the baby daughter of our host, there
in the open air, in sunlight, in the midst of nature. . . . [The wife] was a
German blonde, mature and pretty. . . . The couple appeared from the
first glimpse to be completely fitted for each other; he was calm and
good-tempered, she was orderly and obedient. By God, if one of us had
this young woman, distinguished by her good looks and her smartness,
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 RELIGION AND POLITICS
she would have beeu a tyrant to her elderly husband,6c and made his lile
unbearable hell.67

The lurid charms of the Jewesses seem in fact to have become a

stock-in-trade of Arab publicists rwiting on the state of Israel. An
Egyptian journalist for instance who visited fsrael regales his readers
with a report about the easy and uninhibited ways of Israeli women.
All of them, he says, go about in very brief shorts which 'disclose the
articulation between the thigh and the trunk, and in the evenings I
used to see yount men and women on the two sides of the street
behaving as if they were in a bedroom'. Israeli beauties sit waiting in
the hall of the Dan Hotel in Tel-Aviv, and if you should pull one of
them by the hand she would get up and go with you anywhere.EE An
anti-Nasser pamphlet, again, disseminated by the Muslim Brethren
after the June 1967 war taunts the Egyptian president with having
so mismanaged things that 'the fighting daughters of Israel can now
swim naked in the Suez Canal in your sight and hearing'.5o Or take
quite a different book, a polemic against non-Muslims written by a
well-known leader of the Muslim Brethren, Muhammad al-Ghazali.
He attacks the view that the Bible is all divinely inspired: 'Have you
heard these inspired verses from the Holy Book? I fear that you may
be a young man with burning desires, and these lurid pictures might
wreak havoc on your conscience, . . . How strange, these sacred verses
through which glides the snake of sexual love, agitated and excited,
as though dancing to the rhythm of a tainted music!', and to clinch
his point - and gratify his readers - al-Ghazali proceeds to quote
several verses from the Soag oJ Songs. And yet he also holds up as an
example to the divided and incompetent Arabs the energy and re-
sourcefulness of the Jews. 'In spite of [this contrast] there are mouths
which open - Oh! how I wish they would have been stuffed with
actions - and say: We are the descendents of noble-born heroes . . .
and these are the rejects of the world. . . . What is this blindness?'60
These attitudes, ambiguous as they are, seem yet innocent of Euro-
pean anti-semitic doctrines. They derive from Muslim conditions,
from the inaccessibility of Muslim women, and the shock adminis-
tered by the victory of an inferior group hitherto held in contempt.
As for anti-semitism, there is no doubt that in its traditional
theological variety so well known in Europe it was increasingly
propagated in the middle east through the nineteenth century by the
indigenous Christian communities who were in many cases confirmed

335
 THE CHATHAM HOUSE VERSION
in their prejudices by European indoctrination' No doubt the in-
creasing prosperity and assertiveness of the Greeks in the Ottoman
empire, their rivalry with the Jews in economic affairs, the greater
ease of travel, the greater availability of cheap books and newspaPers,
all contributed to an increase in tension between Jews and Christians
in the nineteenth century. By r8oo, a contemporary observer noted,
Jews hardly dared to enter, much less live in, those towns of the
Bosporus which had a heavy Greek Orthodox population, who be-
lieved that they acquired merit by inflicting whatever injury they
could upon the Jews. Holy week was particularly dangerous and on
Good Friday the effigy of a Jew was paraded and burnt publicly in
order to atone for the original sin of the Hebrew nation.sr The century
is punctuated with reports of Christian, frequently Greek Orthodox,
anti-Jewish outbreaks in Rumelia, Anatolia, Syria and Egypt, most
frequently occasioned by the blood libel.02 An orthodox from Beirut
describes for us the anti-Jewish legends current in his community:
I was not to stray away from my guardians - not even a few yards -
because the cursed Jews might steal me and murder me. I was told that
the sons of Abraham feasted on the blood of Christian children. Several
instances were mentioned to me when christian children known to my
kindred had been captured in the Jewish quarter in Beyrout and bled to
death by those enemies of christ. My flesh crept and crawled when the
process of 'bleeding'was described to me.

The traditional beliefs acquired a new lease of life with the increase in
literacy, and the propagation of European books which seemed to
confer on these beliefs all the authority and prestige of Europe. Thus
we find the erudite cheikho commending in the learned journal which he
edited a French work rehearsing the familiar blood libel of r84o
in Damascus (in which the French consul took so sinister and
murderous a part).The book, writes the Reverend Cheikho, sets out
.the horrible crime of the
Jews in seeking time and again to bleed
once a year a christian in order to mix his blood with their Passover
cakes. The true reports concerning this are countless"6{
By this century, then, the traditional anti-Jewish themes of
ctrristian theology became widespread and popular in a way in which
they had never been in the middle east ever since Byzantium and
St John Chrysostom's incendiary sernons in Antioch' But they now
also became jazzed uP by the introduction of a modern European
theme, that of 'scientific' anti-semitism. Anti-judaism and anti-
semitism now fed on each other and provided arguments for anti-
336
 RELIGION AND POLITICS
Zionism. Marun Abbud explaining how natural anti-Zionism is to
him, says: 'Do not forget that our hatred for "God's chosen People"
flows in our veins. We curse them in our churches and always we
abuse them in our prayers and masses'.06 Another Lebanese writer,
the Orthodox George Hanna, exemplifies the transition from anti-
Judaism to anti-semitism when he tells us in his Autobiography that
the 'terroristic' (al-irkab$tya) teachtngs of the Old Testament used
to capture his imagination as a school-boy before it began to be
subjected to the 'tolerant' teachings of the New: and he adds that it is
part of the Zionist conspiracy to spread knowledge of the Bible in
order to gain the sympathies of non-Jews. However virulent, eccle-
siastical anti-Judaism would never have described any part of the
Bible as terroristic in its teachings;06 and it is clear that George
Hanna is superimposing on the anti-Judaism which he no doubt im-
bibed in his boyhood a later and quite different doctrine.
There is little doubt that this modern doctrine of anti-semitism
was propagated in the middle east, before the Palestine war of 1948,
from European and western sources, frequently through the inter-
mediary of native Christians who themselves in many cases were
already predisposed to its acceptance by the anti-Judaism with which
they were already acquainted.s? An interesting and apposite example
lies to hand. The American millionaire Charles Crane who was George
Antonius' patron was a votary of the fashionable anti-semitism
according to which the Jews were ruining the world with their
atheistic communism, and therefore an admirer of Hitler and Nazism.
We see him diligently endeavouring to propagate this belief among
Muslims, employing Antonius to arrange meetings with such Muslim
notabilities as Hajj Amin al-Husaini, Rashid Rida, Ahmad Shafiq
Pasha, Mustafa and AIi Abd al-Raziq, and Mustafa al-Maraghi,
where he endeavoured to awaken them to the dangerous Jewish
campaign against religion and private property, and to convince
them that the arrival of Jews in Palestine was only another move in
the anti-God campaign which they had started in Russia and else-
where and by which they hoped to accomplish their programme of
annihilation.og
In Sakakini's case too the traditional anti-Judaism based on reli-
gious grounds is certainly present:'ft seems to me that you Jews,'
he says to a Zionist, 'are most in need of divine scriptures, but I fear
that the prophet among you today will suffer the fate of his pre-
decessors whom you killed and burned. . . . The prophets and Holy

337
 THE CHATHAM HOUSE VERSION
Scripture have come from you, but they are not for you.'6e But this
anti-Judaism is yet laced with more novel doctrines borrowed from
Europe, as usual in an incoherent and contradictory fashion' Thus,
Sakakini considers that Judaism makes its followers soft and un-
manly: 'The Jews in their festivals lament and weep. . . . Muslim
festivals, on the contrary, are rousing events. . . . If the nation is to
have festivals, let them be like the Muslim ones . . . let us have
nothing but rousing songs and let us dance with swords,'?o
And yet, far from encouraging'spirituality', the God of the Jews is
a nature deity: 'If you compare Judaism and Christianity you will
find that the God of the Old Testament is the God of Nature, while
the God of the New is the God of Reason. The God of the Old Testa-
ment says: Multiply and filI the earth and may your Progeny be like
the stars of heaven or the sands of the sea. In other words, the God
of the Old Testament is the God of procreation.'?l This doctrinaire
anti-semitism, difrcult to reconcile with traditional Islam, as has
been said, seems to have been introduced to the middle east mainly
by eastern Christians who had easier access to western literature but
not enough judgment to exercise critical and discriminating choice.
The point may be illustrated by a lecture in the Department of Public
Administration of the University of Beirut by a director-generd of
the Lebanese Ministry for Foreign Affairs, Fu'ad Ammun, a Maronite.
Warning America against the Jewish Peril, the speaker quoted an
alleged speech of Benjamin Franklin's at the Constitutional Conven-
tion of t787, waming the convention against the admission of Jews
to America. If they did not take the necessary me.uiures, Franklin is
said to have warned his colleagues, they would be cursed by their
children and grand-children. But this speech is not by Franklin. It is
a forgery widely circulated by Nazi propaganda in the United States
during the r93os.?2
The disorientation was not only intellectual but dso practical'
Political action, which to their ancestors w.ls an unprofitable and evil
necessity, began to seem to the new men an exciting game in which no
stakes were adventured or hosta6es risked, but the rewards of which
were ample and sure. After the Young Turk Revolution, Sakakini
was asked by the local committee of Union and Progress to join this
secret society. He agreed, and with melodramatic ceremony involving
masked men, revolvers, etc. was made a member. He swore on oath
to defend the Fatherland and the constitution with his life, if need be.
He remarked to his sponsor that he had really taken this oath at
338
 RELIGION AND POLITICS
birth, and on this night was merely renewing it.?8 A few weeks later
he was asked to join another secret society,
that of Arab Brotherhood,
which was directed against the committee of Union and Progress,
and again Sakakini enthusiastically agreed to join.?a He had, it is
true, occasional qualms about the new model politics which his
public actions and utterances recommended to his co-religionists and
pupils. He was taken aback by the announcement of jihad when the
Ottoman empire entered the war, and feared that an old spirit of
fanaticism would be resuscitated.T6 He confided to his diary that the
Muslims were incapable of civic spirit, that they were riven by family
factions and would promote only family interests.To He refused the
post of director of Arabic Broadcasting in 1935 because, as he told
George Antonius, a Muslim would be preferable in this post.?? This
on the part of an Arab nationalist - votary of a doctrine which, if it
meant anything at all, meant that among Arabs religious difierences
were utterly of no account - is paradoxical, and in one who is himself
not a Muslim, somewhat pitiful. Antonius, we are interested to see,
shared the belief that Islam and the Muslims ought to have the
primacy in Arab nationalism; in a letter of 1935 about Kawakibi to
Muhammad Rashid Rida he makes a curious - and revealing -
statement. Kawakibi, he told his eminent Muslim correspondent,
was working towards the two fundamental and related aims, 'I mean
the revival of Arab nationality through the revival of Islam - without
which revival the Arabs can have no life.'?8 This attitude finds its
paradigm in another Arabic-speaking Orthodox, Khalil Iskandar
Qubrusi, who published before the second world war a series of
articles in a Muslim religious periodical in which he called upon his
co-religionists to embrace Islam because it was the true Arab religion
and if they adopted it then all the Arabs would be Muslim and only
the foreigners Christian.?o There is a letter from Sakakini to his son
which gives us a glimpse of the inner insecurity and bitterness which
these expressions of solidarity with, these glorifications of, Islam, all
too often masked. The letter was sent in rg3z, and the son who was
then studying in the United States thought so highly of it that he
translated it and distributed it among his friends, providing it with a
preface in which, among other things, he explained that his father
never went to church because he feared to come out of there rebellious
and because he feared to disturb the calm of his soul and the stability
of his mind. Sakakini writes about a lecture he had given which
seems not to have been properly appreciated; he burst out:'No

339
 THE CHATHAM HOUSE VERSION
matter how high my standing may be in science and literature, no
matter how sincere my patriotism is, no matter how much I do to
revive this nation, even if I burn my fingers before its sight, as long
as I am not a Moslem I am nought. If you desire to amount to any-
thing, then be a Moslem and that will be peace.' He tells his son that
if the Muslims respect him, it is only because they think him more
sympathetic to Islam than to Christianity and Europe and because
he has an erudite knowledge of Arabic and its literature; but 'if I
were to struggle with a Moslem who is less founded in knowledge and
heritage than I, I would not doubt that they would prefer him to
survive'. Ife confesses that 'whenever I think of you and your sister's
future, I am alarmed for you' and concludes by wishing that his son's
generation will be better than his own and'that you will not return
to this country until it has changed land for land and people for
people, and when a man will be estimated by what he achieves and
not according to how he preserves these outworn customs'.to
But these Iorlorn and despairing accents are not heard in his
public doctrine, which is clear and categorical. Religion is reactionary
and divisive. A Muslim-Christian union and the advocacy of pan-
Arabism ought to be the only policies of the Orthodox. A delegation
of Orthodox from Jaffa came to Jerusalem in March r9r4, to Propose
the formation of a party for the defence of Christian interests. He
opposed this and told them: 'If your aim is political, then I do not
approve it, because I am an Arab first of all, and I think it preferable
that we should form a national party, to unite all the sons of the
fatherland regardless of religion and sects, to awaken the national
feeling and infuse a new spirit . . .'.81 'As for temples', he wrote at the
same time, 'they will be transformed in time into societies or national
schools, and instead of preaching on religious matters, there will be
preaching on national matters'.t8 He gave refuge to a man wanted by
the Ottoman police and wrote that he was only emulating his Bedouin
ancestors for whom hospitality was a law: the man had not taken
refuge with KhaIiI Sakakini, but with the Arab nation itself repre-
sented by one of its members.Eg
After the war as a correspondent of the Eglrytian newsPaPer
al-Siyyasa,he wrote a series of articles on Palestine and Zionism which
he later collected and published in a booklet. These articles also
exhibit the extravagant and bombastic lengths to which he went in
identifying himself with Muslim and Arab history. Apostrophising
the Jews, he says: 'We conquered the world, founded illustrious
340
 RELIGION AND POLITICS
kingdoms, actively built the foundations of learning, carrying high in
our turn the banner of civilisation. How can your history be com-
pared to ours?' The Arab nation was and still is warlike, 'if it finds
nobody to fight, it will create an enemy in order to fight him'; on
'our' festivals 'we dance with swords as though marching to war or
victoriously returning from it. As for you, your festivals - this is not
said to taunt you - are festivals of mourning and lamentations from
which you emerge with dulled senses and drooping spirits. How can
the nation which knows naught but weeping stand fast in the swamps
of death?'84
In r9r9 he became a leading advocate of pan-Arabism, agitation
for which was then being directed by the Sharifians in Damascus.ss
ln tgzo he resigned from the Education Department because the
high commissioner, Sir Herbert Samuel, was a Jew.86 In 1935 he
built a house in Jerusalem, and gave each room the name of an Arab
capital: 'This is San'a, this is Damascus, this is Cordova, this is
Baghdad, this is Cairo'.8?
In the end, of course, all this fervour, which made the Orthodox an
appendix to the pan-Arab campaiga against Zionism, availed little.
With it, as without it, the Orthodox could have had little say in the
direction of events, which, for a sizeable portion of their community,
ended in disaster. It may be argued that had they remained aloof
from the Zionist-Arab quarrel and from the incompetent Muslim
leaders they might not have become quite so involved in the catas-
trophe; but this is mere speculation. Something else may be said with
more certainty. Sakakini was a teacher, an educationist. His doctrine
as well as his practice introduced political fanaticism into the class-
room. Literature for him was a means for rousing national fervour
among the young.88 Practice reinforced theory, for while a lecturer
in the Teachers' Training College he had led his students in a political
demonstration against the government.8e At the summit of his
official career, as an inspector of education, a few years before his
retirement, he gave a lecture to the school-teachers of Nazareth
entitled: What is national teaching and what is wholesome teaching.
He referred to a poem by Shawqi in which the sentence, Nothing
equals the Fatherland, occurs. This sentence, the teachers said in
answer to his enquiry, ought to be the title of the whole poem. And
he told them: 'The teacher ought to tell his pupils: Repeat this title
five times, and then he ought to tell them: Come let us shout with all
our might: Long live the Fatherland!'oo Of Sakakini this, therefore,
34r
 THE CHATHAM HOUSE VERSION
can be said with certainty, that like other pedagogues of his time and
place he was a recruiting sergeant for the ignorant armies whose
endless brawls now have the middle east for a stage.gr So poor, so
arid, so common a vocation hardly arouses interest. But things are
not what they seem. The frenzy, the assurance, the dogmatism did not
spring fully armed from the brow of some fateful deity, nor were they
the outcome of mere intellectual conviction. Obscure conflicts and
dim torments fashioned them; and it is these, rather than what they
fashioned, which deserve our attention and justify our curiosity.

342
Appendix

A Call to the Arab Christians to join Islam*

by Khalil Iskandar Qubrusi

Summon them to the way of thy Lord

with wisdom and with kindly warning;
dispute with them in the kindest manner.
Qut'an

The Arabs were the first to teach the

world how to reconcile freedom of thought
with true religion.
GUSTAVE LEBON

My call is not to a recent innovation nor to a contemptible heresy but to

a true Arab religion which God revealed to his mess'enger Muhammad,
may God's prayer be upon him. He was faithful to his message and
spread it conscientiously among nomadic tribes who were busy wor-
shipping stones and statues, and who found pleasure in the trivialities of
t}re jahiliyya, He united them when they had been disunited, he estab-
lished unanimity among them where there had been only dissension, and
he directed them to the worship of the Creator. He was undoubtedly the
best of the creation by virtue alike oI his descent, parentage, leadership
and prophetic office.
Such is the Prophet whose religion has been embraced by four hundred
million Muslims scattered all over the inhabited world who recite a clear
Arabic Qur'an. He is the glory of the Arabs and the founder of their
power, of their renown, of their conquests and of their civilisation. He it is
whose apostolic successors reached out to the extreme limits of Europe
and lightened its darkness with their justice, their righteousness, their
piety and who, with the light of their Qur'an, dispelled the depths of its
igr,orance.
A prophet such as this one is indeed worthy to be followed. It is in-
cumbent on us to embrace his message and adopt his caII; for it is an
honourable call based on the acknowledgment of the Creator, the en-
couragement of good actions and the prohibition of evil. Everything in it,
indeed, aims at righteousness and righteousness is the goal of the believer.
This is the religion to which I call all Arab Christians without exception
* Da'ua tasata al-arab ila'l-tl*hhul fi'l-Islam, Cairo, o,.d.

343
 THE CHATHAM HOUSE VERSION
in order to free them from the trivialities of the foreigners and to rid thern
of their corruption. If religion can only come to us at the hand of the
foreigner, and is efficacious only by means of a foreign sounding prayer,
then let such a religion not live or be; for it hurls us to the depths of
corruption and anarchy. Our religion now is more like a childish toy rvith
which we are distracted from the true worship of the Creator and led to
the worship of various nationalities. It is a vehicle for mean and base
designs; it is a means of destruction, a tool of death and ruin. Tell me O
Arab Christians: Is there a priest who praises to you your own nationality
and encourages you to its service? Is there a religious leader who wishes
you to establish amity with your Arab Muslim brother? Has the Lord
Jesus - peace be upon Him - decreed such a thing?
The teaching of the Gospel does not tally with their teachings. They say :
Hate, avoid, beware, detest, abhor, while the Gospel says: Love your
enemies and bless those who curse you; how then much more deserving of
love are your brothers in nationality especially seeing that the Arabs -
Muslim be they or Christian - have ever lived brothers in spite of those
who have tried to divide them. There now come creatures in the shape of
man to sow dissension among us. The religious head who says'The Arabic
language is a language of dogs'humiliates me by despising my language
and my nationality, and he is himself worthy of scorn and rejection, The
religious head who inculcates hate in the heart of his pupils, hate by
asking 'Should we help the Muslims?' and by replying 'Hell for the
Muslims is preferable to paradise for you' is worthy of scorn. Are these
the teacbiogs of Christ? Did the Lord Jesus ordain that school children
should support foreign flags at official ceremonies?
There are now in Jerusalem many societies - or i{ you prefer, brother-
hoods - each under the patronage of a foreign mission and every one of
them a tool in their hands for the purpose of a vast nationalist propaganda.
Strange to say, each one of those societies is loath to mention the name of
any of the others and seeks to destroy them. Does 'brotherhood' mean
anarchy, then? How I have tried to save these societies from those
ruinous depths and how I have tried to secure their independence and
freedom from the yoke of their tyrannical masters, but I have failed
because, according to religion as they know it, they must have a guide,
and the guide must be a foreigner; in this way, independence is ever out
of the question. They have misled our children, trampled on our feelings
and destroyed us utterly. Is it still worthy of us to follow them? Does a
man follow the guidance of his executioner?
What harm would it do the Arab Christians if they should guide them-
selves by the light of Islam, which is a true Arab religion recognised even
by European thinkers? If I call to it it is because I bring tidings of a
blessed union which is the foundation of strength, assuming, that is, that
we intend to free ourselves completely from the yoke of the British -

344
 APPENDIX
from British, Zionist and foreign imperialism, so that there should be
only Muslim Arabs and Christian foreigners'

The Qual,ities of Islarn

Those who listen to the word, then follow the best of it; those
are they wbom Allah has guided, and those it is who are men oI
understanding.
Qur'an

I promised the reader to discuss the qualities of Islam, and when I took
up my pen to fulfil my promise, I found myself in a difficulty from which
it is hard to extricate oneself. I found that the qualities of Islam were not
of those things which can be counted, or from wbich a choice could be
made. These qualities are rather like tbe sea without a shore to be reached
by the sailor, and a depth which no diver could plumb. I therefore de-
cided not to embark on such aD ocean but rather to leave it to its owners,
those whose righteousness in the eyes of God is of more ancient date,
and who have excelled in extracting its pearls and benefited thereby
themselves and others. But if I thought of giving up the enterprise, I
remembered the word of God 'Fultrl the promise of God if you do give a
promise'; I therefore found it imperative to return to the subject, not in
the hope of doing it justice, for I am convinced of my inability to do this,
but in order to keep faith and to obey an honoured and august command.
I then say:
It is enough for you, O fair-minded Arab Christian to understand what
you may of the secrets of the verse with which I have prelaced this
chapter. In spite of the intelligence with which man has been endowed,
his mind still remains dark and its light dim, and it is this verse alone
which proclaims the freedom of Islam and the freedom of its votaries; it
gives them full freedom to meditate on the Creation in all its aspects and
allows them to listen to all advocates irrespective of the diversity of their
aims and their species, for it is assumed that sensible people will listen to
what is said and follow the best of it; and if there had been anything
better than the Qur'an, the honoured speech of God, he would not have
urged people to listen to something else, for then they would have given
it up for its opposite. This is the case with clerical bodies who prohibit
the reading of religious bools other than theirs and forbid their flock to
listen to them for fear of comparisons. Such a comparison would show
that there is a speech better than theirs and it would be followed. Such a
prohibition then results in the suppression of the freedom of thought and
compulsion in religion and belief, preventing the believer from reflecting
about his creed in order to discriminate between right and wrong.
Islam then is the religion of freedom and the Christian religion in its
345
 THE CHATHAM HOUSE VERSION
Frankish dress has become the religion of slavery. How foolish is the man
to whom God has granted freedom who sells it for nothing and consents to
live humiliated and oppressed in all his activities and even in his thinking,
whilst his Creator calls out to him from the heavens 'I myself am the
Lord and there is no God beside me, Worship me', that is, Do not worship
another beside Me and do not bow down to any man by atlowing him to
dispose of your mind, of your spiritual gifts which f have given you.
From this Omar has drawn his memorable saying 'Since when have you
enslaved men and their mothers have brought them forth free into this
world?'
(There follows a passage concerning the proverbial justice and equity
of the caliph Umar, his humility and love of equality. The author then
continues:)
You may be surprised O Christian when I tell you that the leading
place in a mosque is reserved to the first comer no matter how low his
station; the prince has no precedence over the beggar should he arrive
after him. What may surprise you in this respect is that this arrangement
uhercin opptession is forbiililen has no equioalent in the churches uherc the
mosses ale not allowed to sit in the siats oJ the classes. This is because the
clergy have blasphemously transgressed the saying of God: 'The most
worthy among you in the sight of God is the most pious'.
Thanks to this equality pride took its root in the souls of the Muslims;
it was nourished by the proclamation of God's name in the daily and in the
Friday prayers and by constant obedience to God. This is all contained in
this great saying 'God is most Great', meaning that whoever is inferior to
him is of no account and no heed is paid to him however high and exalted
he be. 'Glory be to God, to his Messenger and to the believers'.
That they all pray towards Mecca results in their union, that they give
alms engenders pity for the weak among them, their fasting is exercise
for their body and purification for their souls, their pilgrimage is a re-
minder of their life hereafter, for it is a symbol of the Last Judgment,
and the land of their pilgrimage is the country best suited for their con-
gresses which fully represent their different nations and classes 'in order
that they may witness what is profitable to them and that they may
mention the name of God on fixed days'.
In Islam then is to be found that which is best both for this world and
for the next, and to embrace it is to find eternal everlasting happiness.
(Then follow exhortatory verses from the Qur'an.)

346
 APPENDIX

A Word. from a Ckristian Arab to his Brethren

The Christian Arabs
'Summon thou to the way of the Ircrd with wisdom and with
kindly warning; dispute with them in the kindest manner; thy
Lord best knorveth those who stray from His way, and He best
knoweth those who have yielded to his guidance'.
Qw'an
'If the Christian religion is nothing more than Catholicism in
need of reform (the Roman creed) or Catholicism which is re-
formed (the Protestant creed), then the century which is
leading up to the twentieth (the present century) cannot be
Christian at all'.
A Protestant scholar
The meaning of this is that the religion which needs reform is an in-
complete religion, and that which is incomplete cannot be divine, There-
fore Catholicism is not a divine religion since a reformed religion is far
removed from inviolable perfection because this reform is human and
man is not infallible. Therefore the man of the twentieth century has to
be guided by another religion, and perhaps the Protestant scholar has
fslam in mind. When he was writing this he was ignorant of the disasters
which have befallen us Arab Christians, and without being aware of our
sufiering and tribulations, but nonetheless his meaning applies to what I
intend in this article. After the jahiliyya the Arabs practised tu'o great
religions, Christianity and Islam. The birthplace of these two religions
was the east - the east alone, at a time when the west was wandering in
the errors of pagan ignorance. Christ appeared like a brilliant meteor in
the Palestinian sky and pierced with the light of his goodness the dark
and with the light of his teaching dispersed the murk of error. The
apostles came after him; they too were orientals and they completed what
he had planned for them. They spread over all the inhabited globe
preaching and proselytising and those of the Arabs who heard their
teachings followed them, just as the west was guided by the light of the
teaching of their first teacher - the west which was and still is the source
of our misery and the origin of our distress and our trial. Some of their
men pretended that they were the messengers of Christ, the messenger of
love and peace. And they committed in the name of this love and this
peace shamelul and corrupt actions which have stained the brow of
humanity - not of Christianity alone - with a stain of shame which
cannot be erased. They inflicted tremendous and savage oppressions
which even savages now extinct would not commit: they killed the
innocent, they tortured the pious, they desecrated the sanctuaries as is
347
 THE CHATHAM HOUSE VERSION
happening now in North Africa for the sake of national and religious
fanaticisms. They committed all this in the name of religion but, in
truth, religion is innocent of their slanders. Thus religion became a play-
thing with which to distract the masses and to guide them according to
their own whims. I do not think that there is a Christian who has not
yet heard of the Inquisition (The Council of Ten) in the Middle Ages.
This evil then burst open and its volcano erupted its lava upon us. The
devils of hell - or, as they call themselves, the heads of religion - came to
us to this east - the lustre of their light and the sunrise of their learning.
They started to teach - in the name of the religion which we originated -
tenets that used to be true but which they have disflgured, and truths
with which we lift the darkness of their skies but which they have en-
veloped in the darkness of their errors. They swooped on us as vultures
on their prey; they hurried to us as the thirsty hurry to the source; they
stretched their hands towards our national unity and tore it asunder,
and to the source of our tranquillity which they muddied. They ad-
ministered to us the poison of anarchy as though we were a booty given
over to them or cattle without owners, fnstead of carrying on with their
religious duties, they carried out a racial propaganda. They made the
land of the Arabs a base for their propaganda and used it as a seat to
exercise their seduction. There are Catholics who call for loyalty to the
French, Protestants singing the praises of the British, and Italians doing
their national duty towards Italy, In short, they appear as the mild lamb
but they are in reality nothing but dogs barking at each other and devils
deceiving one another. They have become devouring lions, and famished
dogs. They have swooped down calling in their assistants, fought battles
and created factions. And they were more ready in support of their
obvious false claims than we were in support of our obvious right; and
in their manifest error more clear-sighted than us with our straight
guidance. They forgot that the good leader exposes himself to dangers
and perils in order to benefit his people, What is worse, they give the
lie to God and to us by saying that the Christians of this country are not
Arabs but the remnant of the Crusaders; this only to weaken us and to
kill our nationhood and to transform us into a nameless nonentity. . , .
Because they despise our glorious Arabic language, the language of the
exalted Qur'an, they scorned to use it as the language of their ritual,
compelling us to pray in their languages. Is it not right after all this for us
to hate them; to detest and to despise them and to seek for a religion to
deliver us from the yoke of this slavery?
Since the religion of God has always been one among the ancients and
the moderns, and has difiered in nothing but in its outward form, while
its essence and truth are always one, namely what the whole world is
commanded to do throughout the intermediary of the prophets and the
messengers, and since the highest aim in religion is belief in God alone

348
 APPENDIX
and his steadfast worship, as well as mutual aid and forebearance, and
since the good is worthy to be loved wherever it is found, what harm would
itdo the Christian Arabs if they united in religion as they are united in
race [with the Muslims], and we may then get away from this misleading
faction in fulilment of His saying, glory be to Him: 'I have not taken as a
support those who lead into error'.

Of Priests anil Monhs

O you who believe; most surely many of the doctors of law and
the monks eat away the property of men falsely, and turn them
from Allah's way; and as for those who hoard up gold and
silver and do not spend it in Allah's way, announce to them a
painful chastisment. On the day when it shall be heated in the
fire of hell, then their foreheads and their sides and their backs
shall be branded with it. This is what you boarded up for your
selves therefore taste what you hoarded.
Qut'an

(This chapter begins with a vehement repetition of the concluding

paragraph of the previous chaPter,)

Religious men have come from Europe, dressed in black not as a sign of
piety and humility but as a symbol of the blackness of their heart and the
darkness of their souls. In the name of Christianity they spread a racialist
propaganda in order to sow dissension between the Muslims and the
Christians of Palestine, the better to enslave them. Their latest intrigue
as the newspaper F'ilostin has recounted is to attemPt to f,lch King
David's tomb from 'our brethren the Muslims' in order to increase the
hatred of the Muslims for the native Christians. . . .
If we consider how they have trampled our rights and desecrated our
sanctities, we would find no explanation for this except that they are
westerners and sons of god, and that we are easterners and therefore
sons oI men. Here are some instances of their iniquities:
r. Holiness is a preserve of the westerners alonel Not a single Arab
has been proclaimed a saint. Does this mean that we are all evil men,
while some of them are saintly men?
z. Their monopoly of high religious office from cardinal to bishop.
The sons of gods, no matter what their nationality, occupy these offices
but not the Arabs.
3. The sway exercised by foreign religious missions and missionary
institutions over our own people and their trampling over the right of
the Arab clergy and the denial to these of administrative independence
which obtains in other countries.
349
 THE CHATHAM HOUSE VERSION
4. The fact that no Arab sits in the religious courts and the communal
council while many foreigners are members.
5. Their beggrng for alms in the name of the Arab Christians in order
to lower their dignity, not for love of benevolence. They rejoice in this
falsehood in order to have an excuse for begging, to expose the infirmities
of the Arabs and their shame, and to swell up with pride.
(The author then goes on to say that words cannot exhaust the misdeeds
of this foreign priesthood, They have become so unbearable that the
people of Nazareth have preferred to secede from them and to set up a
separate community with an Arab religious head. Others have gone so
far as to renounce any contact with them preferring to lead an honour-
able life rather than to burn in the fire of their hell. The author reminds
his readers that he is not a stranger to them but has endured the
oppression of their priesthood and experienced their arrogance, He has
therefore come to the conclusion which he presses on his compatriots:)
I have therefore called you to Islam, your Arabian religion, which
God has sent down in your noble language. Be not therefore like a child
rvhose sleep deepens as you try to wake him up, or like those who have
become careless through procrastination. I am not calling you to give in
to a passing whim or to a novel opinion but to the exemplary path in
which is to be found the best both of eternity and of this world. Let
souls be one, let all the hands cooperate and let all dispositions be cordial
and all purposes be in harmony and concord, and peace be with you.
(There follows a chapter entitled The foreign clergy yesterdoy ond loday
where the author recurs at some length to the cruelties perpetrated by
the Christian Church and to its hatred for Islam. He reminds his reader
of the callous way in which the Muslims were at last expelled from Spain;
of the Inquisition which from r48r to 1499 burnt at the stake ro,ezo
people, hanged 67,86o and condemned 97,o23 more to other punish-
ments. He gives instances of receot sayings attributed to Roman Catholic
ecclesiastical dignitaries and missionaries in which they state that their
aim is to undermine and destroy Islam, He contrasts these proceedings
with the humility and forebearance of the legendary and proverbial
Umar, the second caliph. It may be said in passing that in Arab national-
alist literature Umar stands second only to Muhammad as an exemplar
of the virtues of Arabism; his role as a culture hero may be worth investi-
gating. This is followed by a last chapter on Missiottories anil Missions,
in which he exhorts the missionaries to go and labour among the idolaters
for the Palestinians have no need for them. 'You are a danger to your-
selves', he tells them, 'and to us'. As a Christian he expresses his indigna-
tion at their activities and calls on the newspapers to investigate the
problem again and to draw the attention of the government to the evil
consequences of these activities.)

350
t2

The Chatham House Version

I
po*t1
Between r9r8 and 1945 the British empire was the dominant
in the middle east. It was precisely during this period that a particular
version of the recent history of the middle east was put forward in
Britain which gained - and perhaps to this day retains - great
credence both among the public and in official circles. This
version
may be called the chatham House Version. Publications of chatham
Hoor" - the Royal Institute of International Affairs - used regularly
to carry a statement to the efiect that 'the Institute, as such, is
precluded by the terms of its Royal charter from expressing an
opinion on any aspect of international affairs. Any opinions expressed
in tt is publication', the statement concluded, 'are not therefore those
of the institute'. The disclaimer is neither to be dismissed, nor even
to be taken lightly; but the books and other publications dealing with
the middle east which, for some three decades, came out under the
auspices of the Institute, a.re seen on examination to have in common
noionty a publisher's imprint, but also assumptions, attitudes, and
a whole iniellectual style which make it possible to speak of the
Chatham House Version.
That this version of recent middle eastern history was widely
influential and authoritative cannot be doubted. chatham House
was during this period perhaps the only centre in the English-speak-
ing world to devote attention, steadily and systematically, to the
of the middle east. Again, unlike the usual kind of learned
"d"i*
body, it was a place where iournalists, men of affairs, officials and
potiiicians ruUULd shoulders and exchanged views with academics.
Thir *"r the intention from the start, The statement just quoted also
told us that the Institute was 'an unofrcial and non-political body,
founded in tgzo to encourage and facilitate the scientific study of
international questions'. This brief statement is also no doubt
accurate, but its very brevity tends perhaps to obscure an ambiguity
35r
 THE CHATHAM HOUSE VERSION
or complexity of intention on the part of its founders. For, as we
discover, the 'scientific study of international questions' was not an
activity to be pursued for its own sake. The founders of the Institute
rather entertained the view that such study would serve to enlighten
public opinion, and by enlightening it to prevent catastrophes similar
to that of August r9r4. 'The passions which embroil nations a8ainst
each other and wreck civilisation'declared the provisional committee
of the Institute in its report to the inaugural meeting whibh took
place on 15 July rgzo,'all have their roots in the ignorance born of
isolation'. The League of Nations enabled. and encouraged the peoples
of the world to subordinate their narrow and parochial inteiests to
those of humanity, and the committee regarded the Institute as 'the
natural correlative' of the League, in the belief ,that that project
will succeed by virtue of such measures to promote international
thought and feeling as are here recommended,. This high-minded
aspiration rested on the equally high-minded assumption that the
pursuit of selfish interests and the conflict which this occasioned, was
merely the result of misinformation and ignorance. This comes out
clearly in the statement of the provisional committee to the effect
that the 'inadequate' postwar settlements were the consequence of
the 'discordant opinions' which had been propagated in the past.l
rt was therefore not only by reason of its work and publications that
the Institute became influential. Rather, we may say that proceeding
on this hopeful theory about the relation between knowledge and
action, the founders and directors of the Institute actively sought to
create for it a position of influence in public affairs.
With the outbreak of war in September 1939, it became abundantly
clear that sweetness and light in international affairs were not the
outcome of surveys, study groups and information papers. As a
contribution to the war efiort chatham House established the Foreign
Research and Press Service which was housed at Balliol college,
oxford, and which consisted of 'a group of leading authorities in this
country on the whole range of world affairs, under the direction of
Professor Arnold To5mbee'.s In April rg43 the Foreign Research
and Press Service was taken over by the Foreign Office. .The work in
the new Department', the Annual Report for tg4z-3 tells us, .con-
tinues under the direction of Dr A. To5mbee, the Director of studies
of Chatham House, and the stafi consists of certain members of the
regular stafi of the Institute who have been seconded to the Foreign
Service . . . with reinforcements from the former politicar rntelligerrce

352
 THE CHATHAM HOUSE VERSION
Department of the Foreign Ofrce, which has been amalgamated with

*:J::"'slffi Ht#i:lB:lT"ff ""iT#1ffff "8#:'fi ;

Toynbee remained the director until 1946. Thus, in a m.umer perhaps
noi envisaged by its founders, Chatham House continued to maintain
a strong connection with practical afiairs, and this ensured for the
views of its writers and research staff a privileged access to the
ofrcial world.
In middle eastern afiairs, particularly, this official connection was
perhaps even closer and more intimate by reason of the formation
of tt J Cairo Group. The report tot rg4z-3 states that members of
chatham House and others then in cairo had suggested the formation
of a discussion grouP, which was approved by the Council of Chatham
House. The group, the chairman of which was H. S. Deighton, 'has',
the report toes on to say, 'good relations with the British embassy,
the military authorities and the minister of state's office, as well as
with the British Council and the Middle East Bureau'.{ We learn
from the report for 1944-5 that the Council of Chatham House,
anxious to place the Cairo Group on a more permanent basis, had
discussed its future with Brigadier I. N. Clayton, adviser on Arab
affairs to the minister of state in cairo, who was on a visit to London
in the spring of 1945;6 and the report for 1945-6 tells us that Brigadier
Clayton was now the chairman of the group.o
Th" b.ti"f then, that there is a tight connection between the study
of policy and the making of it, the assumption of the unity of theory
and practice, has deeply marked the character and the activities of
chatham House. This is no doubt what its founders aimed at and
desired. It is also the outcome of the long connection with the Institute
of Arnold J. Toynbee. He was appointed Director of Studies at
Chatham House in 1925, and retired from this post only in 1955'
During thirty years he was the dominant intellectual influence at
Chatham House, and the Chatham House Version is very much his
handiwork.

II
During the thirty years of his tenure at Chatham House Toynbee
wrote or edited the numerous annual volumes of the Swruey of
Internalional Afahs which chronicled world politics from the morrow
353
 THE CHATHAM HOUSE VERSION
of the first world war to the morrow of tire second; during this period
he also began and finished the ten volumes of. A Stwd,y o! History; and,
as has been seen, from 1939 to r.946 he presided over the Foreign
Research and Press Service and the Research Department of the
Forergn Office. All through these three decades therefore Toynbee,s
practical and historiographical preoccupations are seen to be inti-
mately intertwined. But, for him, this wa,s more than mere accident,
the outcome of his particular circumstances, of his prodigious
industry, his devouring curiosity, and his wide-ranging imagination.
Rather he believed that what happened a thousand years ago has its
analogy with and its bearing on what happened only yesterday, and
on what should be done here and now. There is a remarkable passage
in what is perhaps the most interesting and eloquent section of z{
Study ol Historyr,thesection entitled'The Quest for a Meaning behind
the Facts of History', in which Toynbee tells us of a mystic vision
which he had and in which all difference between past, present and
future was at that instant utterly annihilated. He says: .In London
in the southerrr section of the Buckingham Palace Road, walking
southward along the pavement skirting the west wall of Victoria
Station, the writer, once, one afternoon not long after the end of the
first world war - he had failed to record the exact date - had found
himself in communion, not just with this or that episode in History,
but with all that had been, and was, and was to come. In that instant
he was directly aware of the passage of History gently flowing through
him in a m(hty current, and of his own life welling like a wave in the
flow of this vast tide.'?
All that had been, and was, and was to come: this clearly is the
scope of Toynbee's enterprise. Readers ol A Stud.y of History lonow
that it is a history not only of the past, but also of the future . part rz
discusses, inter alia, 'Possible Constituent Elements of a Future
World Order', 'Probable Functions of a Future World Order', and
'Probable Employments in a Future Oecumenical Society'. In this
vast panorama, current affairs take their allotted place and, as Toyn-
bee has himself insisted, the Suruey of Internationat, Affoirs and ,{.
Stud,y of History have exercised a mutual influence upon each other.
'A survey of current affairs on a world-wide scale', he has written,
'can be made only against a background of world-history, and a study
of world-history would have no life in it if it left out the history of the
writer's own lifetime, for one's contemporaries are the only people
rvhom one can ever catch alive. An historian in our generation must
354
 THE CHATHAM HOUSE VERSION
study Gandhi and knin and Atatiirk and F. D. Roosevelt if he is to
have any hope of bringing Hammurabi and Ikhnaton and Amos and
the Buddha back to life for himself and for his readers.'8
But it is not only that the historian of Ikhnaton has to concern
himself with 'Gandhi and Lenin and Atatiirk and F. D. Roosevelt',
thus giving a peculiar twist to Croce's dictum that all history is
contemporary history. It is also that for such a historian, history is
morality teaching by example and by analogy, is the illustration of
certain eternal and inflexible rules of conduct, to break which must
lead to unhappiness and catastrophe. The historian, therefore, by
virtue of his calling, must be deeply immersed in the problems and
dilemmas of the practicallife. Toynbee quotes with approval Polybius'
statement that either men of action should write history, or historians
'should take the view that history cannot be written effectively
unless the writer has acquired an outlook that can be given only by
actual experience of practical life'.e He also believes that the accumu-
lation of historical knowledge will promote a better world: 'In order
to save mankind', he declares, 'we have to learn to live together in
concord in spite of traditional differences of religion, civilisation,
nationality, class, and race. fn order to live together in concord
successfully, we have to know each other, and knowing each other
includes knowing each other's Past.'lo It is in this way that Toynbee's
work has chimed in so well with the preoccuPations of the founders of
Chatham llouse, and perhaps satisfied their eagerness to influence
- of course for the better - the practice of international politics.
What then is the historian Toynbee's political doctrine? To eluci-
date this, we must remember that he is primarily concerned not with
the study of politics, but with the study of civilisation. civilisations
are not states or political structures; rather they are a cluster of art,
architecture, language, technique and, above all, religion.lr Toynbee
is concerned to enquire how they came to be, what holds them
together, when and how they disappear. He wishes to find out why
people cease to greet one another in Akkadian or Latin, how one style
of architecture begins to replace another, and the way in which one
religion ceases to provide solace to a particular society and another
begins to attract its allegiance. He is above all oppressed by the
transitoriness and mortality of all human artifacts. It may even be
that his earliest and most powerful impulse to historical enquiry was
such a vision of decay and death. This vision which he had in rgrz
when he was a very young man must have touched him deePly, for
355
 THE CHATHAM HOUSE VERSION
he recurs to it three times in A Stnd,y of History. He also mentions it
in an early substantial work, The Wester* Questdon ,in Greace anil
Twrkey, which came or:l" in tgzz. We may quote his account of this
early intimation of mortality as it appears in volume 4 of. A Stuity
of History, published in 1939:

The truth that Venice is 'dead and done with' and the moral that
others, besides'Venice and its people', may be'merely born to bloom and
drop' [he writes], have also been impressed upon the present writer's
imagination by another visual image which remains as sharply printed
on his mind today as at the instant when he received it more than twenty-
five years ago. Turning the corner of a mountain in a lonely district at
the eastern end of Crete, he once suddenly stumbled upon the ruins of a
baroque villa which must have been built for the pleasure of a Venetian
grandee in the last days of Venetian rule in the island before the .Osmanlis
came to reign there in the Venetians'stead. It was a house which might
have been built for a contemporary nobleman in England, and have been
Iived in - had it stood on English ground - by its builder's descendants
down to the tenth generation in the writer's own day; but, having been
built, as it happened, by Venetian hands in Crete, this piece of modern
western architecture was as utterly'dead and done with'- as veritably
'a museum piece' - in en rgrz as the Minoan palaces at Knossos and
Phaestus which the traveller had been looking at a few days before. In
the common mortality which had overtaken each of them in turn, at
moments more than three thousand years apart, these desolate habita-
tions of vanished thalassocrats bore witness, against their makers, that

in due time, one by one

Some with lives that came to nothing, some with deeds as well undone,
Death came tacitly ard took them where they never see the sun.

As the English traveller recalled the English poet's lines, he reflected

that the four and a half centuries for which Venice had been mistress of
Crete were a longer span of time than the present age of his own country,s
rule over the earliest acquired of her overseas dominions. .. . That
baroque ruin in Crete, as it stood in an r9rz, was a memcnto moi for arr
England that was then still alive, as well as for a Venice that was then
already dead.

It is when To5mbee's tone is at its most melancholy, when he is

prophesying the sure doom of worldly ambition and the utter vanity
of mundane enterprise, that the voice of this classical scholar turned
polyhistor reaches furthest and carries most conviction.
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 THE CIIATHAM HOUSE VERSION
Civilisations die. But why do ttrey die? We are almost tempted to
say, because they had the misfortune to be born. civilisations are
alwa5rs the offspring, the creation of creative minorities. These creative
minorities are creative because they enjoy a high degree of self-
determination. But civilisation to be civilisation cannot remain con-
fined to the creative minority. civilisation spreads to the mass, and in
so spreading become mortally stricken. In the mass creativity ceases,
self-determination fails, and a mechanical mimesis becomes its
substitute. Volumes 4, 5 and 6 ol A Stud,y oJ Histoty which treat of
the disintegrations of civilisations are the memorial of our condition,
and their tables of contents themselves a misetere, a litany of lamen-
tations: The Mechanicalness of Mimesis, the Intractability of Institu-
tions, the Nemesis of Creativity, the Idolisation of an Ephemeral
Self, the Idolisation of an Ephemeral Institution, the Suicidalness of
Militarism, the Intoxication of Victor!, Schism in the Body Social,
Schism in the Soal, Pammixia arrd Proletarianisation. So emphatic
and insistent is Toynbee on active and continuing self-determination
as the -unattainable - preservative of civilisation that at one point
in his argument he is led to sketch out a theology d rebours in which,
reversing, somewhat like the ancient Ophites, the hierarchy of the
Book of Genesis - or the Syriac legend of the creation of the Physical
Universe as he calls it - he makes the Serpent, not God, the creative
principle in the universe. According to this legend, then:
when 'God saw everything that He had made, and, behold, it was very
good; and the evening and the morning were the sixth day ' ' ' and on
ihe seventh day God ended His work which He had made; and He rested
on the seventh day from all the work which he had made; and God
blessed the seventh day and sanctified it, because that in it He had
rested from all His work which c,od has created and made' - the immediate
result was a static paradise, and it needed the Serpent',s undesignedly
beneficent intervention to liberate God's energies for performing a fresh
act of creation in spite of Himself.rr
The more self-determination there is, the more one acts in response
to an internal call rather than to an external challenge, the more
growth and progress there is: 'In other words the criterion of growth
is progress towards self-determination; and progress towards self-
determination is a prosaic formula for describing the miracle by
which Life enters into its Kingdom.'l4 To describe this miracle which
is or ought to be the goal of all human endeavour, Toynbee uses
another term: etherialisation. This is the 'conversion of the soul from
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 THE CHATHAM HOUSE VERSION
the World, the Flesh, and the Devil to the Kingdom of Heaven,and
the transfiguration 'of a precarious Brotherhood of Man into a Com-
munion of Saints'.ti This universal sainthood entails nothing less
than the elimination of mimesis from society, and no civilisation,
Toynbee observes, has even distantly succeeded in this.r6 Hence their
successive and fatal disintegrations.
The communion of saints, a civilisation utterly ethereal, has no
need of states or of politics. It is no surprise, therefore, to find that
Toynbee is profoundly hostile to them and considers them carriers of
corruption and harbingers of decline. His distinction between what he
calls culture and what he calls politics is sharp and categorical: ,the
cultural element in a civilisation is its soul and life-blood and marrow
and pith and essence and epitome, while the political and, a
fortiori,
the economic element are, by comparison, superficial and non-
essential and trivial manifestations of a civilisation's nature and
vehicles of its activity.'l? But superficial, non-essential and trivial
as they are, yet these manifestations are also demonic. Institutions,
in contrast to personal relations, 'folmbee says, oblivious of Freud
and Dostoevski, are 'slums'.r8 'It is not easy', he also says, .to draft
a definition of the state that distinguishes it from another ancient
institution: slavery.'rs In speaking of it, he adopts the language and
imagery of Augustine of Hippo: 'Human Life on Earth,, he declares,
'is lived in two societiessimultaneously
- the Ergastulum of Leviathan
and the Commonwealth of God.'20 But unlike Augustine, he does not
allow that the state could be a remedy, as well as a punishment, for
sin. On the contrary, his language leads one to believe that human
beings can live a life of ethereal'culture' and utterly avoid the evil
of 'politics'. His Augustinian simile is therefore something of a
paradox, used as it is to support a Manichaean view. His categorical
separation of the ethereal from the material, his uncompromising
demand that 'love' take the place of 'politics', his refusal to allow
that (as Crazy Jane tells the Bishop in yeats's poem)
love has pitched his mansion in
The place of excrement

lead Toynbee to that rigid and narrow moralism which is so striking a

feature of his system. As is well known, Toynbee insists that all the
civilisations he has studied - with one or two exceptions - died by
their own hand. They committed suicide by their unwillingness to
become ethereal. They are guilty, and their blood is upon their heads.

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 THII CHATHAM HOUSE VERSION
As one of Toynbee's profoundest critics has written: 'We have here
an historian whose moralistic ideas of immanent justice, which make
history a succession of guilts and punishments, goodness and reward,
clash with the Jewish revelation of God's dealings in history, which
are beyond human standards and responsibility.' And as Toynbee,
the same writer acutely adds, 'deliberately ranges himself on the side
of the believers, his views on the collapse of civilisations amounts to
carrying unholy fire to the altar.'2l
This dogmatic and insistent moralism clearly ends by seriously
impairing Toynbee's judgment. He refuses to concede what common
experience teaches, namely that the wicked do quite often flourish
like the green bay tree, that in human affairs force and violence are
occasionally decisive, or that love and gentleness are sometimes
productive of evil. He insists that the only fruitful human encounters
are the works of peace,zz that 'it is the gentle and not the violent vein
which is apt to be fruitful in the religious field'.z8 Since religion holds
such an important place in Tolmbee's system, such a statement
constitutes a crux in his argument, and we are curious to see with
what evidence he buttresses it. He contrasts the 'gentle 6thos' of
Christianity and Manichaeism with the 'violent 6thos' of Maccabean
Judaism and Sasanian Zoroastrianism. The contrast is perhaps
forced and questionable, but such as it is, it serves to account, in
Tolmbee's scheme for Christianity's success and the failureof Judaism.
What then are we to say of a similar contrast which he makes? For
Toynbee opposes the Baha'is and the Ahmadis who are said to be
'alike distinguished by a spirit and cult and practice of gentleness' to
the 'militancy' of the Islam from which they are both derived; and
lest we mistake his meaning he insists in a footnote that 'The Sunna
has been militant from first to last'.sr The historical value of such a
contrast is again not at issue here, but if Islam has been militant -
and its major section militant 'from first to last' - how then to explain
its great success and the comparative lack of success of its Baha'i and
Ahmadi offshoots?
It is not only in religious history that Toynbee's moralism leads to
failure of judgment. The same failure is even more manifest when he
discusses politics. The figures in modern history whom he admires
themselves tend to the same arid, ineffectual and dogmatic moralism:
Gandhi, Tolstoy, Lansbury, Sheppard;z5 and his partiality to their
style of thought and action leads him to some such statement as that
'it can already be forecast with some confidence that Gandhi's efiect
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 THE CHATHAM HOUSE VERSION
on human history is going to be greater and more lasting than either
Stalin's or Hitler's'.2o
To5mbee's dislike and depreciation of politics leads him to dismiss
political arrangements and devices as tainted with cynicism. Thus
religious toleration as it began to be practised in modern Europe
after the Wars of Religion is 'unedifying' and expresses 'nothing
more noble or more constructive than a cynical disillusionment with
the fruitlessness of a violence which has been previously practised
ail, twusewrn'.27 Again, so impatient is he of all politics, and so ready to
smother it in heavy moral condemnation, that he comes to consider
all political activity as a homogeneous whole in which accident,
circumstance, intuition and character are quite unimportant, and to
look upon every political act as, by definition, morally equivalent to
every other political act, equally heinous and equally pernicious. In
a discussion of papal policy in the thirteenth century, To5mbee con-
demns fnnocent IV for his 'moral aberration' in refusing to make
peace with Manfred, the son of Frederick II Hohenstaufen 'who had
abandoned his father's aggressive ambitions and who was only
anxious to be left in peace'. Toynbee tells us, in a footnote, that the
historian Barraclough considered this description of Manfred's
attitude and intentions 'beside the point from fnnocent's point of
view, just as Hitlerian protestations of goodwill and peacefulne$s are
beside the point for France today'. To this comment Toynbee's
rejoinder is that this 'striking parallel damns Poincar6-la-Guerre
without exculpating Sinibaldo Fieschi'.3t Hitler and Poincar6 are
thus judged morally equal. Morally equd also are Zionists and Nazis.
Toynbee is able to make such an analogy by describing the Jews
murdered by the Nazis as 'the vicarious victims of the Germans'
resentment over their military defeat at the hands of their western
fellow Gentiles in the war of eo r9r4-r8', and by describing the
Palestinians made homeless in consequence of a war which they lost
to the Zionists as, similarly, 'the vicarious victims of the European
Jews' indignation over the "genocide" committed upon them by
their Gentile fellow westerners in eo rg33-45.'2e To distinguish and to
specify is required not only of the historian, but also of the judge -
unless he is a hanging judge. But eagerness to deliver a moral verdict
has resulted here in a failure to distingrrish and to specify, to the
detriment both of moral and of historical judgment.
The state is an ergastulum and all politics is pernicious. But in
Toynbee's scheme, one particular kind of state surpasses all others in
36o
 THE CIIATIIAM HOUSE VERSION
oppressiveness. This is what he calls the universal state. When
civilisations disintegrate through failure to maintain creativity and
self-determination, there comes upon them a'time of troubles'from
which they seek relief and a measure of security in a universal state.
Such a state is established by saviours with a sword. But salvation
by the sword is illusory; violence begets greater violence, and in the
end those who wield the sword - or their descendants - find that they
have wielded it in vain: 'though their fair-seemingPar Oecunun'ica
may stand steady on its grim foundations of buried sword-blades for
thirty or a hundred or two hundred years, time sooner or later will
bring their work to naught.
'Time is, indeed, working against these happy empire builders
from the outset; for sword-blades are foundations that never settle.'8o
A universal state, again, is a dead weight and a dead hand which
stifles all creative impulses. It is 'passive, conservative, archaistic,
and in fact negative in every respect'; it is an 'incubus' and a 'vampire
state'.81
One such universal state was the Ottoman empire. It was called
into being by the disintegration of the fthodox Christian Society,
and in fact constituted the universal state of that society. It is true
that at one point in Toynbee's discussion, the Ottoman empire
escapes harsh strictures which, in his eyes, universal states always
deserve. In volume 8 he laments that 'in the name of an alien ideal
which had thus been imported in an evil hour [i.e. Nationalism], the
shot-silk fabric of a seamless Ottoman robe was remorselessly plucked
to pieces by cruel hands, anil the broken threads of each diverse
national hue were then roughly rewoven into so many separate rags
to make a patchwork coat of many colours, in which the only note of
uniformity was a monotonously pervasive stain of blood.'8r This
encomium is not easy to reconcile with what Toynbee usually has to
say about the Ottoman empire, and we may suspect that it was
called forth by his even greater dislike for what he calls Late Modern
Western Society in which Nationalism originated.
Everywhere else in his work Tolmbee's judgment of the Ottoman
empire is as unfavourable as that of other universal states. The empire
has been an 'incubus', at any rate since the close of the seventeenth
century. Before then, it had been an institution whereby'human
watch-dogs' controlled and exploited masses of 'human cattle'.88
Readers of. A Stuily of History know how taken the author is, how
obsessed almost, with analogical argument, and what weight it is
36r
 THE CHATHAM HOUSE VERSION
made to bear in his complex and baroque structure. It is always
interesting, and occasionally rewarding, to follow the convolutions
and meanderings of To5mbee's analogies. Why, we wonder, this
likening of Ottoman rulers to rvatchdogs and of Ottoman subjects to
cattle? At first sight, the answer seems to be that the Ottomans were
originally nomads, and that therefore the political institutions of the
empire ever after bore the indelible mark of the conqueror's simple
pastoral past. A shepherd boy in central Asia mustering his sheep
with the help of a faithful sheepdog, and the padishah keeping order
in his far-flung realms by means of janissaries, are they not exactly
alike? The comparison seems perfectly obvious and utterly illuminat-
ing until we remember that Ottoman military organisation had, at its
origin, no place for a corps of slave soldiers, and that the janissaries,
as their name implies, constituted a deliberate innovation quite some
time after the simple shepherds of central Asia had become a for-
midable power in Anatota. The analogy, we begin to suspect, does
not originate in the remote uplands of central Asia, but, ironically
enough, in the prejudice and misunderstanding with which Europeans
have long viewed Islam and the Ottoman empire. This prejudice and
misunderstanding Toynbee had begun by sharing, brtt wilh The
Western Question and subsequent writings did his best to shake it off,
sometimes with startling results. Thus, in the syncretistic prayer
which concludes A Stud.y of History, he invokes Muhammad's inter-
cession in these terms: 'Tender-hearted Muhammad, who art also
one of the weaker vessels of God's grace, pray that His grace may
inspire us, like thee, to rise above our infirmity in our zeal for His
seryice.'8{ It is difrcult to say which is more out of place, the epithet,
'tender-hearted', or the nice judiciousness with which the Prophet is
patronised as 'one of the weaker vessels of God's trace'.
The clue, then, to Tolmbee's view of the Ottoman empire lies in a
common European misunderstanding of the relation between ruler
and subject in the empire. What the misunderstanding is we may
gather from a statement which is crucial to his argument: 'The
Ottoman Pidishlh', writes Toynbee, 'himself is a shepherd of men;
his trained human sleves (qhilar) correspond to his Nomadic fore-
fathers' auxiliary animals; while the function of the rest of the
Pldishdh's subjects in the Ottoman social s5rstem is plainly indicated
by their ofEcial designation as human cattle (ra'iyeh).'s0 p'r'r'U"r
is the European translation of ra'iyya or ra'd.ya as human cattle, it ".is
none the less erroneous, and erroneously pejorative. The word derives

362
 THE CHATHAM HOUSE VERSION
from the Arabic root,ra'd, to tend a flock, and means the subjects for
whom the ruler is responsible, as a shepherd, (rd'i) is responsible for
his flock. The word therefore has none of the undesirable associations
which the expression 'human cattle' conjures up. On the contrary,
it implies rather that the ruled, the ra' iyya, are the object of the ruler's
benevolent concern. As any one acquainted with the Psalm which
begins 'The Lord is my shepherd' will appreciate, there is nothing
particularly Ottoman or central Asian about this idea. It is on the
contrary a very old notion, bound up perhaps with primitive ideas of
kingship, and of the king's function in protecting his community
and in shielding it from natural or supernatural harm. In classical
Arabic usage the word applied indiscriminately to all subjects,
whether Muslim or non-Muslim. This seems to have been also the
case in Ottoman usage except that by the beginning of the nineteenth
century - when Toynbee's 'human watchdogs' had long ceased either
to bark or to bite - the word, while continuing to be applicable to
Muslims as well as non-Muslims, came popularly to denote specially
the non-Muslim subjects of the sultan.86 This popular usage was
picked up by European travellers in the east. In their prejudice and
ignorance, these hastened to translate ra'Eyya as cattle, and thus to
denounce the callous oppression of Christians by Muslims. And it is
on this blind and probably wilful misunderstanding that Toynbee
rests his imposing analogical edifice.8?
His view of the Ottoman empire as composed of watchdogs and
cattle leads Toynbee in turn to yet another analogy even more com-
plicated, and more misleading. He compares the Ottoman empire to
Sparta; the slave janissaries to the free-born homoioi and the free
subjects of the Ottoman sultan to the enslaved helots and the servile
periokoi. What to us seems a crying contrast, to him seems, by a
perverse paradox, a perfect similarity: the Ottoman empire was
composed of human watchdogs and human cattle; Sparta was like-
wise; therefore Sparta and the Ottoman empire become two instances
of a law which describes the character of nomad rule over a settled
population. To5rnbee carries this notion to extreme and ludicrous
lengths, devoting a whole appendix in volume three to complicated
and abstruse calculations which prove that the numerical ratio of
'human cattle' to 'human watchdogs'was as high in Laconia as in
the Ottoman empire.38 And to emphasise this parallel between Sparta
and the Ottomans Tolmbee draws upon his powerful topographical
imagination - which is usually one of his strong points as a historian -
363
 THE CHATHAM HOUSE VERSION
to show how akin and alike were these two incubi. He compares the
conspiracy of the helots against the Spartans with the Greek revolt
against the Ottomans. 'The Christian ra'iyeh of the 'Osmanlis' he
says, no doubt wishing by this choice of words to remind us that the
Greeks in r8ar were mere cattle, succeeded 'in wiping out the local
representatives of the Ottoman ruling class - men, women, and
children - in their Laconian citadel of Mistr} and throughout the
Morea. The ruins of Mistrl, which remain down to this day as they
were left on the morrow of the sack of the city in r8zr, bear grim
witness, for any visitor who seeks ocular testimony', concludes
Toynbee with a clinching argument, 'to the virulence with which the
-
'Osmanlis were hated by their ru'iyeh and the Spartans, before
them, by their helots'.8o All this vast structure of analogy and com-
parison, in itself extremely shaky and doubtful, is erected, as we
remember, on the mistaken translation of the word ra'iyeh to mean
human cattle.
But the Ottoman empire, in Tolmbee's view, has a peculiarity of
its own, which serves to set it apart from other universal states. The
justification of the Ottoman empire as a universal state was that it
provided protection and security - however illusory, and however
ruinous its price - to the disintegrated Christian Orthodox Society.
But in the sixteenth century the emprre went beyond, or rather
transgressed 'the precise and limited programme' which history had
assigned to it. And this was the manner of the transgression: the
Ottomans themselves, though acting as the universal state of the
Orthodox Christian Society, were themselves members of an Iranic
Society which, together with an Arabic Society, emerged, by the
mediation of Islam, from the disintegrated Synac Society of which the
caliphate had been the universal state. In his volume of. Reconsid,era-
lions Toynbee was to describe the - admittedly peculiar - notion of a
Syriac Society as a'hypothetical construction' which he thought up
in order to solve problems posed by his system; he also admitted that
the notion of an Iranic and an Arabic Society sired by Syriac Society
was also rather difficult to entertain.{o But the argument in the main
body of his work depends rather heavily on these constructions.
It so happened, then, that in the sixteenth century, one branch of
the Iranic Society - the Ottoman - prosecuting a quarrel with
another branch of the Iranic Society - the Persian - set upon and
assassinated its sister Society, the Arabian. The occupation of Cairo
by Sultan Selim in r5r7, Toynbee tells us, was the analogue of the
364
 THE CHATHAM HOUSE VERSION
conquest of Constantinople by the Crusaders in tzo4. Down to about
r5oo, we are further told, the Arabic and Iranic worlds tvere more or
less isolated from one another, and each world a unity itself. The
Arabic Muslim Society, which had been defended by the Ayyubids
and the Mamlukes - and how utterly surprised, like M. Jourdain, they
would have been to know what they had been so long and so un-
consciously doing-was by 'an apparently wanton attack upon
inoffensive neighbours'-how offended the Mamlukes would have been
to be called inoffensive! -'forcibly incorporated'into Iranic Society in
order to be merged in the'united Sunni Islamic World'.rl
Arabic Society, we thus see, also has a peculiar place in Toynbee's
system. It is not, like other societies, guilty otfelo d,e se.lt is purely a
victim of the Ottoman assassin. The Arabs, Toynbee is emphatic,
had not 'prepared the way for the Ottoman aggressor by doing them-
selves any fatal injury with their own hands'. The 'indigenous Arabic
Society of Egypt', for instance, 'still continued to lead its separate
and self-sufficient life, in which the peasantry and the 'ttl,ama and
the urban guilds of merchants and artisans each played their inter-
dependent parts, and all recogrrised one another's respective func-
tions in the corporate life of their common body social. Indeed', he
goes on to say, 'the forcible unification of the Arabic Society with the
Sunni fraction of the sister Iranic Society through the external act of
the Ottoman conquest did not ever Pi$s over into an inward social
fusion; and the unitary Islamic Society which has confronted the
modern Western World, and which has made such an imposing im-
pression of unity on our Western minds, has always been something
of an illusion.'{2 The Islamic world, he also says, is 'really not an
organic unity but a pile of wreckage', in which the Osmanlis have
lived a 'cultural life-in-death' and in which the murdered Arabic
Society has taken vengeance on its assassins by raising the 'ghosts of a
Primitive Muslim puritanism in the successive explosions of Wah6bi,
Sanrfsi, Mahdist, and Idrisi zealots'.'s Religious movements such as
Wahabism, it is notorious, are extremely difficult, especially for out-
siders, to understand and interpret, and to assert that they arose as a
reaction to Ottoman conquest seems blithely and cavalierly to go
beyond the known evidence. That they are the reactions of an Arabic
Society to such a conquest is even more doubtful. For even on Toyn-
bee's own criteria, the generation of the Arabic Society remains
obscure, and its existence shadowy. The interest of his peculiar treat-
ment of recent Islamic history (with its populist and romantic picture
365
 TIIE CHATHAM HOUSE VERSION
of an autonomous Arabic Society led by its notables and divines, and
carrying on an existence separate from that of its Ottoman overlords)
resembles nothing so much as the apologetic historiography of pan-
Arabism. In this historiography, as in To5mbee's, the 'Arabs', long
oppressed by Ottoman imperialism, have now at last emerged to
claim their rightful place as an autonomous nation. This, of course, is a
very recent interpretation, made possible by the diffusion in the
middle east of the European doctrine of Nationalism. One can see its
role as a myth contributing to that transvaluation of values in the
throes of which the Arabic-speaking world finds itself. Its presence in
Toynbee's work shows that it is still infected with the categories of
Nationalism which he has emphatically repudiated and denounced,
after having enthsuiastically embraced it, in common with other
liberals and radicals of his generation.rr
The Ottoman empire has always occupied a special place in Toyn-
bee's historical imagination. As has been seen, it was in Crete in rgrz
when the island was nominally still part of the empire, that he had his
crucial vision of the decay and death to which every civilisation, every
domination is doomed in turn. Again, it was to a situation arising out
of the destruction of the empire that he devoted what remains per-
haps the best book he has ever written, Tke Weslern Question in Greece
and, Twkey. The book admirably shows Toynbee's virtues as a
historian: the breadth of his learning, the fecundity of his imagina-
tion, his ability to connect the political, the economic, the social and
the spiritual, and his topographical eye.
In Tlw Western Question the reader wiU find briefly and lightly
stated many of the themes which Toynbee was later to develop, with
such a profusion of extravagant and wearisome detail, ia A Study of
History. One major theme of the latter work constitutes in fact the
main theme of The Western. Question. The subtitle of this work is, z{.
Stwd,y in the Contact of Ci,ailisati,oras. Tolmbee's contention here is that
the conflict between the Greeks (who were allowed by the Allies in
April r9r9 to invade Smyrna and its hinterland) and the Turks (who
under Mustafa Kemal successfully resisted the invasion) was the
outcome of the spread in the middle east of European political ideas
which were particularly ill-suited to the area, and hence profoundly
destructive. The theme is magisterially stated in the opening para-
$aphs of the first chapter which is entitled: 'The Shadow of the
West':
Savages [writes Toynbee] are distressed at the waning of the moon
366
 THE CHATHAM IIOUSE VERSION
and attcmpt to counteract it by magical remedies. They do not realise
that the shadow which creeps forward till it blots out all but a fragment
of the shining disc, is cast by their world. In much the same way u/e
civilised people of the west glance with pity or contempt at our non-
western contemporaries lying under the shadow of some stronger power,
which seems to paralyse their energies by depriving them of light.
Generally we are too deepty engrossed in our own business to look closer,
and we pass by on the other side - conjecturing (if our curiosity is suf-
ficiently aroused to demand an explanation) that the shadow which
is the ghost of their own past. yet if we
oppresses these sickly forms
paused to examine that dim gigantic overshadowing figure standing,
apparently unconscious, with its back to its victims, we should be startled
to find that its features are ours.

'The shadow upon the rest of humanity', Toynbee declares, 'is cast by
western civilisation', but westerners are quite unaware of the havoc
they unconsciously wreak in the rest of the world, and their very
ignorance constitutes the tragedy of this particular contact between
civilisations: 'This conjunction of great efiect on other peoples' lives
with little interest in or intention with regard to them', Toynbee
points out, 'though it is common enough in human life, is also one of
the principal causes of human misfortunes; and the relationship
described in my allegory cannot permanently continue. Either the
overshadowing figure must turn its head, perceive the harm that
unintentionally it has been doing, and move out of the light; or its
victims, after vain attempts to arouse its attention and request it to
change its posture, must stagger to their feet and stab it in the back.'{6
ln The Western Qwestion contact between western and middle
eastern civilisations was strikingly invoked to explain the character
and the virulence of the conflict between the Greeks and the Turks.
In A Stu.dy of History, the first three volumes of which were published
twelve years later, such contact itself became the subject of a complex
and far-reaching theory. According to this theory, the difiusion of
artifacts and ideas from one society to another assumed a sinister
aspect. Toynbee has recourse to an analogy, and describes this dif-
fusion as 'social radiation'. 'For our present purpose', argues Toynbee,
'we may confine ourselves to noting the fact that in social, as in
physical, radiation a ray is a composite affair which requires to be
diffracted into its elements in order to penetrate a foreiga body.'
The rays emitted by a civilisation in a process of growth, Toynbee
further declares, are undifiracted and hence do not penetrate an
367
 THE CHATHAM HOUSE VERSION
alien social body. They are undifiracted, it would seem, because 'one
of the characteristics of civilisations in process ofgrowth is that all the
aspects and activities of their social life are co-ordinated into a single
social whole, in which the economic, political, and cultural elements
are kept in a nice adjustment with one another by an inner harmony
of the growing body social.' In a disintegrating society - which is a
sick society - this harmony is no more, and the 'discord in the fabric
of the radiating body is reproduced, in the form of diffraction, in the
rays which the body now emits; and these diffracted rays of the dis-
integrating civilisation have greater power to penetrate the tissues of
alien social bodies than the undiffracted rays which the same civilisa-
tion used to emit in the time before the breakdown, when it was still
in the growth stage.'{o
The analogy may seem both fanciful and obscure. But at any rate
lye are to understand from it that the diffusion, say, of the idea of
nationalism in the middle east, which in Tke Western Question was
ascribed to a mere contact between civilisation,aT must now be laid
at the door of western society itself which, sick and disintegrating,
emits its cancerous rays to infect and destroy other societies. To leave
the analogical for the literal, Toynbee believes that the 'westernisa-
tion' of the world and the geographical expansion of western civilisa-
tion indicates the breakdown of this civilisation. We are 'almost
warranted', asserts Toynbee, in regarding geographical expansion
which is 'an index of the encroachment of one society upon the domain
of another' as 'a social disease: an elephantiasis or fatty growth; a
running to stalk or a running to seed; the malady of the Reptiles
who turned huge on the eve of being surpassed by the Mammals; or
the malady of Goliath who grew to gigantic stature in order to suc-
cumb to David; or the malady of the ponderous Spanish galleons
which were routed by the English mosquito-fleet.'{E This, for Toynbee,
is a law. It is a law because geographical expansion is associated with
military power;military power is the practice of violence;and violence
is the concomitant of disintegration.a0 Many critics have pointed out
that violence is not peculiar to a disintegrating civilisation, that a
civilisation in the growth stage is also apt to be violent. If this criti-
cism has any substance (and Toynbee seems to accept its force),6o
then its consequences for his system are devastating. Growth and
disintegration become tinged alike with violence, and it is no longer
possible to set up these striking and crucial contrasts between self-
determination and mimesis, between the glorious freedom of creative
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 THE CHATHAM HOUSE VERSION
epochs, and the remorseless oppression exercised by mere mechanical
institutions.6r
It is, in any case, quite doubtful whether Toynbee can sustain his
thesis that the Greco-Turkish conflict in all its violence and atrocity
is a consequence of the contact of civilisations. The Greco-Turkish
conflict was the outcome of territorial ambitions familiar in every
period and under every clime. It is true that it was exacerbated by
pan-Hellenic nationalism which was clearly a western importation.
But the virulence of pan-Hellenism did not derive from the fact that
it was an importation. Rather it derived from the fact that it was a
species of that ideological politics which had wreaked as great - or a
greater - havoc in Europe, where it originated, as in the near east
whither it was imported. Auschwitz and the French Terror did not
happen as a result of contact between civilisations.
As has been seen, in spite of his vehement opposition to nationalist
doctrine, Toynbee's system seems here and there infected by it. A
case in point was his treatment of the Arabic Society. It is interesting
to note that the distinguishing mark of this Society, if the name given
to it is any indication, must be language. Language, as is well-known,
is the very criterion by which nationalist doctrine defines a nation
and recognises its existence. According to this doctrine, the purity of
a language, the absence from it of foreign accretions indicate the
vitality and well-being of a nation. We are interested to see Toynbee
holding such a view. For, according to him, expansion of a civilisa-
tion - which is a sign of its disintegration - is accompanied by pro-
miscuity, pamtniria, and the vulgarisation and barbarisation of the
dominant minority. One of the signs of this promiscuity is the trans-
formation of the language of the expanding civilisation into a ldng*a
franca. This happens because alingua franca 'owes its success to the
social advantage of having served, in an age of social disintegration,
as the tool of some community which has been potent in war or else in
commerce'. A lingua franca loses its native subtleties and niceties:
'for it is only on lips that have learnt it in infancy that any language
is spoken with that effortless perfection which is the dower of Nature
and the despair of Art. In fact', Toynbee asserts, 'a language - even
a natural language - cannot gain an artificiat curency without a risk
of becoming vulgarised.' 'Lingue francha', he therefore concludes, 'are
rare in primitive societies and also rare in civilisations while these
are still in growth. Lingteftanclw only flourish on a spiritual soil that
has been coarsened by that loss of sensitiveness and that appetite for

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 THE CHATHAM HOUSE VERSION
promiscuity which are symptoms of the process of social disintegra-
tion'.6s This nativism, which also makes of a literary - or an artistic,
or a musical - style the index of social disintegration, is in no way con-
vincing. Judgments whether a style is vigorous or efrete, Pure or
impure, lofty or degraded, are apt to change from time to time. Again
changes in the style of a particular activity - say painting or sculp-
ture, or musical, or literary composition - may have an autonomous
character, and no significant relation with socid or economic or
political events. Is there anything in English or French or German
history to explain why Shakespeare or Racine or Bach or Hegel
appeared when they did? Finally, this nativism cannot possibly
account for the rise of such languages as Arabic or English to the
status of world languages. Innumerable people received these lan-
guages as a result of conquest or commerce or migrations and have
learnt to speak and to write them with ease and elegance, and to
express, through their medium, the most difficult and elusive ideas,
and the most complex and evanescent feelings.
However difierent their formal arguments, both Toynbee and the
doctrinaires of nationalism look upon cultural diffusion as deeply
harmful and pernicious. Herder and Fichte would not have dissented
from Toynbee when he speaks of an'assaulted body social' under-
going 'cultural radiation' by an 'assailant' society. As has been said,
the 'assailant' society itself is an assailant precisely because it is in
disintegration, because its creative minority has ceased to be creative
and, resorting to violence, has become a mere dominant minority.
The price which such a society pays for its dominance is the further
degradation which becomes its lot when it has to admit within its
bosom an imperfectly assimilated 'external proletariat'. Toynbee
thus fully shares Juvenal's aversion for the squalid spectacle of the
Orontes dischat'ging into the Tiber: 'In a Modern Western World that
had made itself literally world-wide by radiating its influence over the
whole habitable surface of the Earth, not only the Orontes', he dis-
tastefully comments on these affiuents, 'but the Ganges and the
Yangtse had discharged into the Thames and the Hudson, while the
Danube had performed the more sensational miracle of reversing the
direction of its flow in order to deposit a cultural alluvium of Roman
and Serb and Bulgar and Greek proselytes up-stream in a Viennese
melting-pot. Si testimonium requiris' , Toynbee fastidiously points out
'was not the evidence printed in exlenso and made public in the tele-
phone directories of Vienna and Paris and London and New York
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 THE CHATHAM HOUSE VERSION
and Chicago and a host of lesser cities in the European and American
provinces of a Western Society's homeland?' And what did 'these
endless columns of close print, bristling with outlandish non-Western
surnames' portend? They attest this, namely 'the advent, in a
twentieth century Westernising world, of the blight of promiscuity
that had been demoralising a Hellenising world in Juvenal's day'.
'The social price that a successfully a6gressive civilisation has to pay',
we are invited to conclude 'is a seepage of its alien victims' exotic
culture iuto the lifestream of the aggressor society's internal prole-
tariat and a proportionate widening of the moral gulf that already
yawns betrveen this alienated proletariat and a would-be dominant
minority.'so While it is not evident why the 'seepage' of an exotic
culture should necessarily increase the gulf between the proletariat
and the dominant minority, yet it is clear that for Toynbee such
'seepage' is a squatd affair which increases the degeneracy of the
'assailant' society.
Late Modern Western Society, thus, is and has been the aggressor
for a very long time and is now, in its degradation, reaping the wages
of sin. This is perhaps the best and most widely known of Toynbee's
views. Thanks to the British Broadcasting Corporation, who com-
missioned Toynbee to deliver the Reith I-ectures subsequently
published x The lA orld and, the W est, these views have reached a wide
and respectful popular audience. The west, Professor Toynbee in-
formed his fellow-westerners, is universally condemned for its ag-
gressions. The Russians, the Muslims, the Hindus, the Chinese, the
Japanese and all the rest will all say that the west has been 'the arch-
aggressor of modern times':
The Russians will remind him [the westerner] that their country has
been invaded by western armies overland in r94r, rgr5, r8rz, r7o9 and
16ro; the peoples of Africa and Asia will remind him that western
missionaries, traders, and soldiers from across the sea have been pushing
into their countries from the coasts since the fi.fteenth century. The Asians
will also remind him that, within the same period, the westerners have
occupied the lion's share of the world's last vacant lands in the Americas,
Australia, New Zealand, and South and East Africa. The Africans will
remind him that they were enslaved and deported across the Atlantic in
order to serve the European colonisers of the Americas as living tools to
minister to their western masters' greed for wealth. The descendants
of the aboriginal population of North America will remind him that their
ancestors were s'a'ept aside to make room for the west European intruders
and for their African slaves.sr

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In making this abject public confession for and on behalf of the west,
Toynbee speals as though all the rest of the world were innocent ol
all violence and all misdoing. He had not always been so extreme and
so highly-strung; he did use to recognise that to do and suffer evil is
the universal human condition. Discussing the policies of the Great
Powers in the middle east in the last two hundred and fifty years, he
remarked in Tlu Wesl,erm Qwstion: 'It has been wrong headed and
disastrous behaviour. The mere description of it is an indictment,
but it is an exposure of the little wisdom in the government of
human afiairs rather than of any special depravity in western civil-
isation.'55
This sensible recognition that depravity is not to be imputed to one
section only of humanity steadily gave way, as A Stud'y of History
was being written, to a mounting passion of self-accusation, and to
ever more determined self-flagellation. Toynbee seems to have
started out by sharing the H0bsonian 'anti-imperialism' prevalent
among English radicals before and during the first world war, and to
have believed that empires were acquired and maintained by Euro-
pean states for the sake of their economic benefits.66 He seems to
have become, with the yeats, more anchored in this belief, and more
extreme and uncompromising in expressing his hatred for western
greed and oppression. In the first volume of. A Study of History,
published in 1934, he chides his fellow-westerners for complacently
assuming the superiority of their own civilisation,6? and convicts
them of oppressing the coloured peoples whom they have subjugated;
they have 'almost everywhere abused their power in some way and in
some degree'.6t fn volume 2, also published in 1934, he denounces
western economic activity oversein: in Ceylon, he contrasts the
ancient Sinhalese bund-builders with modern western planters 'who
have interested themselves in Ceylon not in order to propagate a
civilisation but in order to get rich quick'. It does not occur to him
that the ancient bund-builders might have been as interested, and
perhaps more emcient than western planters, in exploiting the
Ceylonese peasantry. Again, he remarks: 'Nanking is only one short
night's railway-journey distant from Shanghai: the den - and school
- of thieves which western enterprise has planted at China's eastern
door.'c0 In the next batch of volumes, published in 1939, his denuncia-
tion of modern western economic enterprise becomes even more
emphatic. He remarks that in fifth-century Greek usage, idioles
denoted a superior personality who committed the social offence of

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'living to himself instead of putting his gifts at the service of society,
and goes on ironically:

It is amusing to reflect that, if we had managed to forget the original

connotation and to carry the original meaning over into the un-Hellenic
moral environment of our own code of social ethics, then the English
word 'idiot'would presumably be used today as a laudatory term; for it
would then still signify a man of parts who has devoted his abilities to the
acquisition of a personal fortune through private business; and this
classical Hellenic b€te noire is our latter-day western hero.tr

He finds the exact analogue of such military'wastrels' as the Mam-

lukes and pre-Tokugawa warlords to be in modern times 'the more
discreetly predatory plutocrats of the nineteenth and twentieth
centuries, who have put the princes in irons in order to usurp for
their own bourgeois profit the adventurer's self-confessed privilege
of playing the game of Raubuirtsclnft with the whole world for their
oyster.'62 Western economic enterprise is an enterprise of plunder.
Western civilisation is based on, and sapped by, 'social injustice'.
It is 'branded with the mark of Cain', namely economic inequality,
in protesting against which 'Communism was proclaiming in a
challengingly loud un-Christian voice a commandment of Christ's
which, on the Christian Church's lip, had sunk to a discreetly inaud-
ible whisper repeated by churchmen.'68
This appraisal of the west has remained Toynbee's considered
judgment. 'In my eyes', he states in the last volume of. A Stud,y of
History, published in 196r, 'the west is a perpetual aggressor'. The
guilt is clear beyond any doubt. But Toynbee is ready to entertain a
plea of diminished responsibility, for he immediately adds: 'I trace
the west's arrogance back to the Jewish notion of a "Chosen
People".'er This theme is constant in his writings. As he himself has
stated, he has seen Judaism through the eyes of the Christian Church
supplemented by Eduard Meyer's. It has been, for him 'a prelude to
Christianity and one which rejected its manifest destiny when it
repudiated the new religious insight or revelation to which it had
been leading up.'05 Th's traditional Christian anti-Judaism - which
is incongruous in someone as religiously eclectic as Toymbee - was
laced with something else, which is a by-product of his system. As
is notorious, for Toynbee the Jews, who have seen the light and
rejected it, are also a fossil. How he came to this judgment provides
yet another instance of his tendency progressively to build up initially
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 THE CHATHAM HOUSE VERSION
simple and perhaps useful metaphors into doctrinal edifices, neo-
Gothic in the luxuriance of their complicated fancies. Originally, it
was only a specific community of Jews whom Toynbee considered
to be a fossil. This was the community of the Ashkenazi Jews in
Jerusalem whom he coupled with the Samaritans, the Druzes, the
Maronites and the Alawis as 'fossils of ancient faiths'.6c His meaning
here is quite clear. To the progressive liberal that he was, these
traditional communities out of touch with modern realities were, so
to speak, fossils surviving from another age. With A Stwdy of History
this analogy became petrified into a rigid theory. The needs of his
system required Toynbee to postulate the existence of a 'Syriac
Civilisation' in which the Jews willy-nilly had to accommodate
themselves, the Bible, for instance, becoming an example of Syriac
mythology. Since the system further required that Syriac Society
should be dead, the Jews, who were manifestly still alive, had to be
'the "fossil" remnant of a society that is extinct'.o? Of Judaism as a
living faith practised by successive generations of Jews since the
Roman destruction of the Temple Toynbee was utterly ignorant.
Pharisee, for instance, remained for him a term of abuse, and it is
only very late in his career that he seems to have discovered such
authorities on rabbinical Judaism as G. F. Moore and R. T. Herford.es
The epithet Judaic has thus served, throughout A Studlt of Hdslory,
to denote all that was most evil in the modern world. 'Fanaticism and
race-feeling' among Protestants derives from the Old Testament;
Marxism 'has caught its spirit of violence from an archaic strain in
Judaism'; 'post-Christian western rationalism' has inherited from
Christianity'a Judaic fanaticism and intolerance' ; Christianity took
the wrong turning when it refused to heed 'Marcion's prophetically
warning voice [that the God of Abraham was really a maleficent
demiurge]'; the west since the seventeenth century has been tryrng
to purge itself of its ancestral Judaic fanaticism and intolerance',
but this has erupted again'in such ideologies as Communism, Fascism
and National Socialism'. eo
In brief the west is a disintegrating society which, owing to its
Judaic heritage, has shown itself to be murderously aggressive. Its
victims, by Tolmbee's count, amount to no less than eight societies,To
who have been assaulted militarily, economically and culturally.

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III
This, then, in all its labyrinthine complexity, is To5mbee's doctrine
concerning the west and its relation to the world. But for all its
analogical outworks and its learned incrustations, the doctrine is
essentially simple and familiar. Listening to the far-fetched analogies,
the obscure references, the succession of latinate, polpyllabic words,
and one involved period following another, we begin to discern the
shrill and clamant voice of English radicalism, thrilling with self-
accusatory and joyful lamentation. Nostra cwllpa, nostra maxirna
cwlpa: we have invaded, we have conquered, we have dominated, we
have exploited.
Nowhere is this feeling of guilt more pronounced than in respect of
the Arabs and of Britain's dealings with them. This is an abiding
theme in Toynbee's writings and in the Chatham House Version.
Tolmbee's conviction that British (and French) dealings with the
Arabs were neither straightforward nor just, was acquired fairly
early in his career. While working in the Political Intelligence Depart-
ment of the Foreiga Oftce, he was asked at the beginning of October
r9r8 to prepare a paper setting out British commitments in the
middle east, and to indicate whettrer, in his opinion, these commit-
ments were compatible with each other.?r His examination of the
correspondence led Toynbee to believe that large tracts of land,
including Syria and Palestine, had been unconditionally promised to
the sharif of Mecca, and that therefore the Balfour Declaration, for
instance, was incompatible with this promise. In reaching this con-
clusion, Toynbee seems to have overlooked the fact that the British
had expressly informed Husayn that all their promises to him were
subordinate to their commitments to France and Russia, and that
Husain (as shown for instance in his remarks to D. G. Hogarth who
was sent at the time to inform him of the tenor of the Balfour Declara-
tion) was quite aware of these reservations. His misunderstanding of
the Husain-McMahon correspondence comes out clearly in a con-
temporary minute. When his memorandum was circulated Colonel
L. Storrs of the War Cabinet offices wrote to ask what ground Toynbee
had for including Palestine in the area committed to Husain. 'I
think', Toymbee minuted on 26 November r9r8, 'our territorial com-
mitments to King Husein depend on his (undated) letter of July r9r5
to Sir H. McMahon, the terms of which Sir H. McMahon, acting on
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 THE CHATHAM HOUSE VERSION
instructions from the F.O., accepted, with certain reservations in his
letter of October 24, rgr5.' 'I think,' he went on, 'a comparison of
these two quotations indicates that we are pledged to King Husein
that Palestine shall be "Alab" and "independent" .'78 As a later
Foreigrr Office memorandum put it, To5mbee's'well-known' PaPer,
which 'had a wide circulation' contained 'no hint of an attempt to
examine fMcMahon's] pledge critically.'?8 But Toynbee has never
given up his belief that in their negotiations with Husain, the British
were guilty of double-dealing. He has occasionally stated that British
commitments to Husain and British commitments to other parties
were incompatible only'in spirit';7{ but on the whole he has continued
to believe that the British were the villains of the piece, that during
the first world war they sold twice over a pup which wasn't theirs to
sell.76
Along with this view of the wartime transactions, Toynbee took
for granted the idea that political unity was desired by the inhabitants
of Arabia, which in an article of r93r he defined as 'bounded by the
Mediterranean and by the rivers of Mesopotamia as well as by the
Red Sea and the Persian Gulf . .. up to the foot of the mountain
rlmges which form the southern boundary of Turkey and the Western
boundary of Persia'. Before the first world war, this 'Arab domain'
was politically united; but the French and the British had, after
r9r8, established 'artificial and arbitrary frontiers' in a manner
reminiscent of the iniquitous partition of Poland in the eighteenth
century. This partition, he afrrmed, 'has been imposed on them
against their will ... and they have so far refused to recognise the
justice or legitimacy of the arrangement. They have had no voice in
it; they regard it as contrary to their welfare; and they would wipe
it out at any moment if they had the chance.'?0 This, of course, was to
accept at their face value the claims and pretensions of a very small
and unrepresentative minority in the Arabic-speaking world. This
pole*ical version of recent middle eastern history with its guilt-
sodden moralism obscures, indeed maLes quite unintelligible, the
acute politicd and social crisis which has this area in its grip, and of
which the short-lived European rule, the failure of pan-Arabism, or
even the Palestine dispute are by no means the most important
aspects. Toynbee seems to have accepted and taken up the successive
claims of the pan-Arab ideologies as these have changed and grown
over the years. Thus in r93r, as has been seen, 'Arabia' for him was
wholly contained in western Asia. But, as is well known, in the late
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 THE CIIATIIAM HOUSE VERSION
r93os and the early r94os, pan-Arab ideologues began to claim that
Egypt was part of the Arab nation. We find this claim implicitly
accepted by Toynbee who, with a fine disregard for the historical
context, in A Stud,y of History describes the 'Urabi revolt as having
been initiated by'Arab officers' of the Egyptian army.?? Again, in an
article of 1964 published in International Afairs (and subsequently
distributed as a pamphlet by the Arab Information Centre in
London) Toynbee declared: 'The Arabs'grievance against Britain for
her treatment of Eglpt from r88z to 1956 has been surpassed, in
intensity and in justification, only by their grievance against us for
our treatment of Palestine since rgr7.'78 It is therefore no wonder
that, as he himself has acknowledged, Toynbee should become
'known as a western spokesman for the Arab cause.'7o The reputation
does not seem to have caused him discomfort for, as has been seen,
Toynbee is a believer in the practical uses of historical authorship.
The picture of the middle east between the wars which emerges
from the Suntey of International Affairs and other writings of Toyn-
bee's is in keeping with the radical, so-called anti-imperialist doctrines
which have been instanced above. Thus he defines for the readers of
the Swruey for r93o the goal of middle eastern politics:

The relations [he says] between tbe middle eastern countries and
extraneous powers during the years tg2g-3o were developing, for the
most part, towards an identical goal: the replacement of an unequal
relation, resting ultimately on force, in which the middle eastern country
was subject to the extraneous power's control by an equal relation
resting on a treaty negotiated freely between the two parties.to

Such a statement shows little political judgment. There was, in the

first place, no indication in r93o that the fortunes of the middle east
were ceasing to be affected - and sometimes actually determined by
the decisions and policies of the European great powers. There is
again the assumption that the world and its ways - the existence of
unequal relations 'resting ultimately on force' - may be conjured away
with high-minded covenants and pious, elevated declarations. And
there is the implicit assumption that relations between middle eastern
states are not just as much based on force as the relation between
outside powers and the middle east, or that the force exerted by one
middle eastern state over another would be somehotff less evil than
force exerted by a European state over a middle eastern one.
This line of thought went along with the belief that the mandatory
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 THE CIIATHAM HOUSE VERSION
system instituted at the end of the first world war was superior to
annexations or to protectorates which merely clothed 'the nakedness
of the rapacity with which western lions and bears and eagles were
seizing and devouring their prey', Mandates 'marked a notable step
forward in the advance from the Machiavellian regime of parochial
sovereignty towards a new oecumenical order of society.'8r Toynbee
did not consider whether mandates, with their temporary and make-
shift air, were not actually a grave disservice to regions where stable
and steady rule was a crying necessity. Mandates, as is well known,
were meant to prepare the mandated areas for constitutional and
representative self-government. Tolmbee believed that in Iraq the
British mandatory had completed its task by the end of the rgzos
and that Iraq should now speedily asisume complete sovereignty.
Iraq, he reported on a visit to the country intgzg, 'is a going concern'
and the Iraqis are 'living in the future'. Relations between English-
men and Iraqis are excellent; but if they are to continue so, Britain
must shortly sponsor Iraq for admission to the League of Nations,
and in this case 'what state member of the League will have the
effrontery to oppose her candidature?'88 Toynbee clearly approved
of British policy in Iraq because he believed that it recognised 'the
force of Arab national aspirations',88 and that the Iraqi government
as set up and supported by British force represented and expressed
these aspirations. Nowhere in his writings does he indicate that this
government was a narrow unrepresentative clique whose ideology
was shared by a few in the country which they had been given to rule,
and which they made the stage of their sanguinary intrigues and
ruthless ambitions. Commenting in the Suruey for 1934 on the Iraqi
clash with the Assyrians which took place in 1933, and which resulted
in the massacre of Simel carried out by the Iraqi army, Tolmbee
stated that 'apart from the Assyrian tragedy, there was no suggestion
that Iraq had either failed to carry out her undertakings to the League
Council or proved not to pass muster under the test of the five condi-
tions for sovereign independence which the Mandates Commission
had laid down.' In fact, of the three parties in the Assyrian tragedy,
the Assyrians, the British, and the Iraqi government, the last,
Toynbee declared, was least to blame: the Assyrians had behaved in
a headstrong fashion, and the British had compromised them and
then withdrawn.8o
If Toynbee approved of British policy in Iraq and of its recognition
of the 'force of Arab national aspirations', he was correspondingly
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 THE CHATHAM HOUSE VERSION
heavy in his disapproval of French policy in the Levant. Indeed in
A Stud.y of History where, as is well known, he compared the Nazi
murder of the Jews to the Zionist treatment of the Palestinians in
1948, he also compared to these two episodes the French occupation
of Syria in r9zo. He reasons thus: the Nazis murdered the Jews to
take revenge for the German defeat in r9r8; the Zionists evicted the
Palestinians from their country in order to take revenge for the Nazi
murders. Similarly, Toynbee argues, in invading Syria in rgzo,'the
French were taking their revenge for an occupation of French soil
in ao r9r4 in which the invaders had been not the Syrians but the
Germans.'85 Leaving aside the exact relationship between Nazi and
Zionist actions, we may affirm that no evidence exists to show that
the French occupied Syria in rgzo because the Germans occupied
France in r9r4. The French, it is more accurate to say, occupied
Syria in tgzo in order to put an end to the shar:ifian regime. They
considered this regime the outcome of a British intrigue to do them
out of their rights under the Sykes-Picot Agreement. This agreement
was, of course, disreputable in Toynrbee's sight, and the French pre-
tensions equally so; but he betrays no suspicion that'Syria'and the
sharifians were not necessarily synonymous, or that the ambitions of
this ramshackle and disorderly regime were possibly just as dis-
reputable as those of the French.
French policy in Syria, Toynbee wrote in a magazine article in
1922, was anachronistic, unintelligent, pig-headed and a nuisance to
Britain. France had to amend her ways, recognize the 'legitimacy of
the Arab national movement', and follow the same policywhichBritain
was pursuing in Mesopotamia. But France did not follow this advice,
and on his visit in tgzg, Toynbee found Syria 'a sad country', in
contrast to Iraq which was 'a going concern': 'The mischief was done
by the political map-makers at the Peace Conference of Paris - or,
rather, by the authors of the "secret agreements" that were nego-
tiated between the Principal Allied Powers during the war. . . . The
territory mandated to France', he asserts, 'is a torso without the
limbs, . . . Syna is being strangled.'8? More particularly, Toynbee
held France guilty of fostering Christian and generally non-Sunni
s€paratism in the Levant. This, in his eyes, s,as reactionary, at a
time when 'in Islamic countries that were left to themselves, the
minorities were being either eliminated or assimilated in the evolu-
tion of homogeneous national states on the western pattern.'88
Toynbee does not explain why Sunni Arab nationalism is preferable

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to Maronite or Kurdish or Alawite separatism, but he clearly takes
it for granted that the British policy in Iraq which imposed Sunni
Arab dominance over this extremely heterogeneous country was more
virtuous, more in keeping with mandatory responsibilities than the
contemporary French policy in the Levant. But his preference for
British over French policy clearly derives from his belief that here
were societies fast becoming homogeneous national entities in which
traditional religious antagonisms were no longer of much account.
ln the Swroey for r9z8 he declares, with no shadow of doubt to cloud
his conclusions that:
the facts reviewed in this chapter indicate that at this time religious
fanaticism was either extinct or in abeyance in the greater part of the
Islamic World - at aay rate in the leading countries of 'the solid core'.
In Turkey, there was no overt opposition at all to a westernising move-
ment which had committed itself unreservedly to the policy of secularism.
In Egypt, Palestine, Syria and Iraq, there was a marked tendency for
the old alignments of Christian against Muslim and Sunni against Shi'i
to give place to new alignments on lines of nationality and for the pursuit
of secular ends.se
Anyone acquainted with the character of middle eastern society, in
rg28 or today, will recognise how wide of the mark is Tolmbee's
judgment. But even if it were not superficial and erroneous to believe
that religion has lost its tenacious hold over middle eastern society,
is it not mere radical rhetoric to assume that 'new aligaments on
lines of nationality and for the pursuit of secular ends' are not pro-
ductive of fanaticism?
We see this radical rhetoric also manifest in Toynbee's assumption
that middle eastern representative institutions were actually repre-
sentative of the people. Thus he refers in the Suntey for r9z8 to 'the
long struggle between the Eglrytian crown and the Egyptian
champions of parliamentarism', and in the Suraey for r93o declares
that with the prorogation of the Syrian Assembly in xgzg'the rela-
tions between the people of Syria and the mandatory power'relapsed
into an impasse.eo In The Weslern Question he had derided the idea
that Zaghlul, for instance, did not represent a coherent national
movement. 'Opponents of political movements claiming to be national
should', he solemnly tells us, 'take to heart Gamaliel's advice to the
Sanhedrin: "Refrain from these men and let them alone, for if this
counsel or this work be of men, it will come to naught; but if it be of
God, ye cannot overthrow it - lest haply ye be found even to fight

380
 THE CHATHAM HOUSE VERSION
against God." ' Firm in the belief that Zaghlul and leaders like him
are 'of God', To5mbee proceeds sorrowfully to remark of imperial
peoples' that it is hard for them 'to avoid the paths of destruction.
Their prophets prophesy falsely, and their people love to have it
so.'ol
The castigation would have been well deserved if middle eastern
politics were as Toynbee implies. But in fact representative institu-
tions in this area have generally been the exclusive apanage of an
official class which, because of its westernisation, has ceased to share
the same universe of discourse with society at large. The gap, in
modern times, between ruler and ruled has grown larger than ever,
and modern representative institutions usually have betokened a
decrease rather than an enhancement in the representativeness and
the responsiveness of the rulers. It is therefore absurd - as later
events have amply shown - to imagine that a Syrian assembly pro-
rogued meant a breakdown in communication betrveen the French
mandatory and the people in Syria. More, it is perfectly possible to
argue that it was in 1936, when they decided to make a deal with the
Syrian official classes, that the French foresook their duty and aban-
doned the Syrians - for whom they had accepted a responsibility -
to cruel and hazardous experiments. Similarly, it is hardly the case
that Zaghlul was the representative and spokesman of twelve million
Egyptians. What Zagtrlul portends is the appearance in the modern
middle east of the demagogue appealing to a mass perplexed and dis-
comforted by the destruction of its traditional way of life, and be-
witching it with unfamiliar slogans drawn from an alien political
tradition. It is therefore not the case that Zaghlul's Wafd, was a
parliamentary and constitutional party while its opponents, like
Muhammad Mahmud and Isma'il Sidqi, were arbitrary dictators.
Rather, all politicians in Egypt under the monarchy exercised power
quite unchecked by elections or parliaments. The record of Zaghlul
and Nahhas who claimed to speak for the people is little different
from that of Muhammad Mahmud who claimed to uphold constitu-
tionalism and limited government, or of Isma'il Sidqi who exercised
power as a king's man. They came and went not in response to popular
wishes, but in consequence of manoeuwings, sometimes obscure and
sometimes blatant, between them, the king and the British. The
difference between the Wafd, and the others is simply that the Wafd,
inherited and successfully exploited Zaghlul's populist rhetoric.
There is no more striking evidence of the essentially unrepresentative
38r
 THE CHATHAM HOUSE VERSION
character of these factions and movements in Egypt - and elsewhere
in the Arabic-speaking world - than the fact that when the military
swept aside the civilians, theWafd. and other so-called political parties
disappeared in a day, without a trace.
This cursory review of some aspects of Toynbee's writing on current
affairs shows that he is right to insist on the intimate connection
between A Stud.y of History and the Suraey of Internatdonal Affairs.
The 'anti-imperialism'of the one echoes the censorious condemnation
of the west which runs through the other. We may see them both as
serving to instil in their western readers a feeling of unease and guilt,
and by so chastening them to diminish their greed and aggressiveness,
and thus promote what the founders of Chatham House desired,
namely a just and peaceful international order. We may go further
and say that this practical aim, belief in the importance of which was
no doubt sincere, did actually get in the way of that 'scientific study
of international questions' to promote which was also the stated
purpose of the founders of Chatham House. For this eagerness to
preach repentance to the west clearly promoted, so far as the middle
east at least was concerned, a superficial and eccentric view of its
society and politics. Absorption in the sterile polemics of imperialism'
and 'anti-imperialism', of Zionism and Arabism, eagerness to award
good or bad marks to this or that action or policy clouded the under-
st_anding and made it the captive of current political slogans. The
Swroey ol International, Afairs particularly suffered from these short-
comings. As an annual survey, it was chained to the chariot of current
affairs, endeavouring breathlessly to keep up with them. But this was
a vain endeavour since history cannot be written from newspaper
cuttings. The attempt to do so only meant that partiality to fashion-
able political rhetoric was not checked, but rather reinforced by the
uncritical assertions of restless 'newsmen' avidly questing for
'stories'. Instances of the resulting superficiality and eccentricity
abound. One may perhaps sufrce. In 1936 a treaty was concluded
between Iraq and Saudi Arabia which was supposed to promote Arab
friendship and brotherhood. The treaty is now as forgotten as the
spring fashions of that year, and was in fact of no visible consequence
in middle eastern politics. In the same year Saudi Arabia also made a
treaty with Egypt which provided for Egyptian diplomatic recogni-
tion of Saudi Arabia, and attempted to mitigate the state of touchy
suspicion which had obtained between the two kingdoms ever since
Ibn Saud had conquered the Hijaz and Fu'ad had tried to become
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 THE CHATHAM HOUSE VERSION
caliph. Thie Suntey for 1936 had to take notice of these two novelties.
Because they occurred in the same year, the Swraey saw them as
manifestations of some deep underlying trend in Arab affairs. They
were 'effective and lasting', indeed they were so many links in the
'chain-mail of Arab solidarity'.08 It is easy to see how a doctrinaire
view of middle eastern politics, reinforced by a belief in the significance
of the latest newspaper headline, has resulted here in utter lack of
judgment.
Tolmbee, then, we may fairly say, is the principal author of
the Chatham House Version. But he was not the only one' His
assumptions and attitudes are found more or less mirrored in the
flow of suryeys, information PaPers, monographs and comments
which issued from Chatham House or under its auspices during his
tenure. This is not to say that they were inspired by him. It was of
course natural that as Director of Studies he should attract and
encourage the expression of views and attitudes of the soundness of
which he approved. But such views and attitudes, we must remember,
were in any case widely shared among the intellectual and official
classes in Britain. The Chatham House Version provided for them
imposing scholarly buttresses and incorporated them in a philosophy
of history which satisfied by its comprehensiveness and finality.
All this literature, then, shared much with Toyrbee's own writings
in large as in small things. There was thus the same - somewhat
unsuccessful - pursuit of exactitude in the transliteration of oriental
narnes, the same recourse to analogical argument, at times gratuitous
and at others misleading. Thus the anon)rmous author of an informa-
tion paper on Great Britain and, Egypt writes:'The result of this
attempt to combine the Egyptian and British theses on the Sudan
in a single compromise formula was no more successful than the
attempt (which it so closely resembled) of the Oecumenical Council of
Chalcedon in ao 45r to reconcile the Orthodox and the (Egyptian
and Syrian) Monophysite views on the Incarnation.'e8 The analogy
is strictly pointless, an example of sterile academicism, and in its
reference to Monophysitism as being Qyptian and Syrian anachro-
nistic and hence misleading. Another analogy, more seriously mis-
leading, occurs in the same publication. Discussing cormption by
Wafd and. other governments in EgPt, the author is moved to com-
ment: 'Analogtres, mwtatis mutanilis, in countries nearer home will
come readily to mind, e,g. the RePort of lhe Tribunal, appointed, to
inquire into allegations refl,ecting on lhc Ofi,cial, Cond.ucl, of Ministers
383
 THE CHATHAM IIOUSE VERSION
and otker Public Seruants (The 'Lynskey Tribunal'), Cmd. 76t6 of.
1949, and cf. the Marconi Scandal of. tgtz-r3.'el The extent and
character of official corruption in Egypt, as is well known, is so widely
difierent from what obtains in Britain, that one is left wondering
whether the purpose of this analogy here is less to provide enlighten-
ment than to insinuate an obscure innuendo.
But similarities between Toynbee and other Chatham House
authors extend beyond matters of style and form, to issues of sub-
stance. There is, for instance, the pervasive notion that government
and society in the middle east are to be understood with the same
categories which serve to explain western political and social arrange-
ments. H. A. R. Gibb, author of a section on 'The Islamic Congress
at Jerusalem in December r93r' in the Suraey for 1934 remarks that
the organisers of this Congress had sent invitations 'to all the Muslim
Associations which had sprung up throughout Egypt and the
Arabic-speaking countries during the immediately preceding years,
and also to the various corps of Shi'ite 'ul,amdi in Syria and Iriq. The
significance of the invitations issued to the former', Gibb proceeds to
argue, 'lay in the perception of the organisers of the Congress that
these associations formed a new and important element in the struc-
ture of Muslim Society, by which, for the first time, the lay and middle
classes were organised for the furtherance of Muslim objects.' It is
quite safe to say that the organisers of the congress (i.e. the mufti
of Jerusalem, whose object in the congress was to aggrandise himself
and diminish his Palestinian Muslim rivals) were far indeed from
perceiving any such thing. Indeed, even today (or perhaps today more
than ever), such a perception is still premature, and these associations
far from forming 'a new and important element in the structure of
Muslim society'- as voluntary associations do in European society -
have in fact been quite insignificant, and have since become even
more insignificant with the spread and perfection of centralised
absolutism. Similarly Europocentric is the reference to the 'middle
classes' of Muslim society. Middle class in European society is an
intelligible notion; in the middle east however, with its tradition of
oriental despotism reinforced by modern centralised absolutism, there
are only two classes: the official class, and the non-ofrcial class;
those who are at the centre, and those who are at the margin of power;
those who belong, and those who do not belong to the ruling institu-
tion. Again, fanciful and premature was Gibb's observation that the
'invitation to the Shi'ah divines to participate in the congresswns an
384
 TIIE CHATHAM HOUSE VERSION

even more striking innovation, inasmuch as it was the flrst outward

manifestation of a new spirit of cooperation'.s6 Such eagerness to find
great significance in public professions argued a dangerous tendency
simple-mindedly to €6sume that, as in Europe, there is some direct
and not so remote connection between what is said and what is done,
between what is stated in public and what is divulged in private. For,
needless to say, this spirit of cooperation between St i'itui and Sunnis
was visible neither then nor since.
Implicit reference to the same western model is found in other
Chatham House authors. Thus G. E. Kirk in a chapter on the middle
east in The Wortd, of March 2q.3i9 (part of the Swraey for 1939-46)
refers to 'a nationalist alliance of upper and middle classes', describes
government in Iraq as being dominated by'a few score members of
the landowning and mercantile oligarchy', and asserts that in Egypt
the Wafd, 'in normal circumstances commanded the votes of . . . the
Egyptian "common man".' fn contrast, he proceeds to observe 'the
other parties were fragmentary groupings round some upper-class
notable, representing privileged interests with no roots in the
people'.00 The assumption here clearly is that as in modern industrial
Europe society can be usefully divided into 'upper', 'middle' and
'lower' classes according to some economic yardstick, and that it is
economic power - that, say, of some 'landowning and.mercantile
oligarchy' - which somehow determines political Power. In fact, Iraq
under the monarchy, to which Kirk applies this analysis, is a clear
example of the well-known condition of oriental despotism whereby
it is political power which bestows wealth and not the other way
round. Again, there is nothing to justify the derogatory description
of the opponents of the Wafd' as'representing privileged interests
with no roots in the people', as though Nahhas, Sarraj al-Din and
Salah al-Din and the other Wffiisl leaders were so many Gracchi,
F. D. Roosevelts and J. F. Kennedys. Similar European assumptions
lead another Chatham House writer to a rather bizarte conclusion.
Discussing Palestine in the Swrvey for 1938, H. Beeley writes thus of
Hajj Amin al-Husaini: 'Only the exiled mufti, from his residence
at Ztqin Lebanon, contrived to express a preference for the western
democracies in the European conflict without appearing to compro-
mise on any of the questions at issue between the Arab Higher
Committee and the mandatory power.'0?
M. Khadduri's Ind.epend.enl lraq,the principal object of which is to
explain Iraqi politics under the monarchy, suffers from the same
385
 THE CHATHAM HOUSE VERSION
misconception. The author begins by stating that 'When the mandate
came to an end there were grounds for confidence that the progress of
the Iraqi government was ensured. Judged by relative standards,
Iraq possessed a modern form of government, a well-guided public
opinion, and civil servants learning by experience and growing in
efrciency. Above all there was', the author tells us, 'the wise leader-
ship of Faysal who inspired public spirit in every department of
government.'08 If this were in any way true, there would be no
accounting for the degraded and murderous politics of Iraq from the
end of the mandate to the end of the monarchy. The fact is, of course,
that this kind of language is most inappropriate to Iraq under the
monarchy or afterwards. Equally out of place are this author's
attempts to describe the sanguinary in-fighting of the Baghdad
politicians, the southern shaikhs and the officers as 'Trial and Error
in Self-Goverrunent',ee or to divide them into 'liberals', 'reformists',
or'conservatives','moderates', or'extremists'. Lack of scruple greater
or lesser, cupidity more or less unrestrained, ability to plot more or
less consummate, blood-lust more or less obsessive: these rather are
the terms which the historian must use who surveys this unfortunate
polity, and those in whose power it was delivered.
Yet another misleading notion is that these middle eastern societies
are its politically homogeneous as western nation-states: 'To the
Arabic-speaking peoples', asserts Kirk, 'the frontiers drawn in the
middle east after r9r8 could not appear as anything but artificial,
quite apart from their political objectionableness.'roo This is to assume
that the Arabic-speaking world had been, except in a very remote
past, a political unity, that the Arabic-speaking peoples are politically
conscious in a manner such that it could be said of them that they
desired or did not desire unity; it is to take for granted the romantic
European notion that frontiers exist which are not artificial. Another
Chatham House author, S. H. Longrigg, as uncritically accepts the
anachronistic slogans of Arab nationalist ideology when he writes of
Syria in r9r4 that 'like its sister-countries, [it] had been, in respect
of at least nine-tenths of its people, self-consciously an Arab country
for a thousand years', that all Syrians 'shared a deep background of
Arabism' and that 'all were at one in enduring a foreign govern-
ment'.101 If 'self-consciousness' is in question, and if we are to use
historical and not ideological categories, what we have to say of
'S5rria' and its'sister-countries' is that its inhabitants for a thousand
years considered themselves either Sunnis or Shi'ites or Druzes or
386
 THE CHATHAM HOUSE,VERSION
Maronites or Greek Orthodox or Jews. Of course, they spoke Arabic,
but this fact until very recent times was of no political consequence
and the majority of the population, namely the Sunnis, by no means
felt that they were 'enduring a foreign government'. Shi'ites and
others of course did, but in this feeling the Sunnis were certainly not
'at one' with them. This view of what Syria 'self-consciously' was
leads this writer to accept without question that in r9r8-zo all the
'syrians' lrnew what they wanted, wanted one thing, and took
organised action in order to achieve their desire. He thus contemp-
tuously rejects the idea that Faisal's government in Damascus may
have been looked upon as a government by outsiders. 'From the first
. . .,' he asserts, 'the administration was Syrian; it continued to be
called "Sharifian" only through habit, ignorance, or the pejorative
malice of its critics.' He would have his readers believe that the
delegates to the Arab Congress organised by Faisal in order to im-
press the King-Crane Commission 'were no doubt effectively repre-
sentative of the great majority of Syrians'- which would have been
a remarkable and noteworthy exception to the record of representa-
tive assemblies in the middle east - and he solemnly affirms, without
a hint of irony, that the 'heads of the Christian communities were
prominent among the swearers of allegiance' to Faisal' Similarly,
Beeley finds that the presence of an Orthodox Metropolitan of the
Bludan pan-Arab Congress of. rg37'emphasised the growing unity of
Arab national feeling.'ror
We find Longngg also taking for granted the notion - for which,
as has been said, there is no warrant - that before r9r4 there had
been a 'Syria' much larger than the Syria of the French mandate;
that this larger pre-war 'Syria' 'had been truncated by the loss of
Palestine and Transjordan' and, he implies elsewhere, by the setting
up of a separate mandate for Lebanon. He speaks of 'the Syria of
geography, of natural economics . . . of national claims' and com-
plains that the frontiers of the postwar settlement did not correspond
'to logical or natural units of s1s2'.r00 But before r9r4 it was not
Syria which had constituted a unity, it was the whole Ottoman
empire. When that empire was destroyed, all its territories were
subject to 'truncation'. The fate of these territories could be settled
only by negotiation between the various interests, more or less
powerful, who could claim to a say in the settlement. This settlement
(like any other) would of necessity be in the nature of a compromise.
It is inappropriate to demand that political settlements should be
387
 THE CHATHAM HOUSE VERSION
'natural' or 'logical'. Politics is neither like a geometrical theorem, nor
like the mating instinct.
Starting from these assumptions, therefore, this author could not
but repeat the particular theme of the Chatham House Version to the
efiect that French mandatory policy in the Levant was both impolitic
and unjust:'no overriding necessity existed in,tgzo',he confidently
asserts, 'to create, small weak non-viable states [in the Levant]. . . .
Even in the case of Mount Lebanon . . . it might well have seemed
desirable to limit rather than to expand its necessarily invidious
privileges . . .'. This, he believed, emphasised the'evident difierences'
between communities and igrrored their 'greater fundamental simi-
larity'. The policy was 'deficient in broad wisdom and vision, it
ignored the basic facts of Synrn ethnography and culture, and the
strength and convictions of the majority community'. Writing in
1958, he still believed that Lebanon should have been incorporated
in a Syria dominated by a Sunni majority: 'friends of Lebanon', he
wrote in sorrowful reproof, 'may well regret the bestowal on that
fragment of Syria a never justifiable national status, and may believe
that it would today be more advantageously placed as part of a
united country, to which it could have made a valuable stabilising
contribution.'lo4 Syrian politics in the last two decades are sufficient
comment on this judgment. But neither on this aspect nor on any
other is it necessary to have recourse to hindsight in order to exhibit
the systematic unsoundness of the Chatham House Version. For this
unsoundness stems from a fanciful and doctrinaire view of middle
eastern politics and middle eastern relations to the Great Powers. In
the case of the Levant, it is mere question-begging rhetoric to insist
that similarities are more fundamental or essential than difierences.
For who is to say, where human groups and their interests are in
question, what is fundamental and what is secondary, what is essen-
tial and what is accidental? And even if the answers were clear, they
could not by themselves determine a political decision. Political
decisions are not scientific conclusions; they are rather the prompt-
ings of the practical judgment, in which play their part inclination
and duty, circumstance and foresight. So that Longrigg's argument
about what is fundamental and what is merely accessory in the Levant
can tell us nothing about the character and motives of French policy.
It only shows that the author is, for some reason, much in favour of
Sunni Arab dominance in this area: they are the majority and there-
fore should have the primacy.

388
 THE CHATHAM HOUSE VERSION
This also is an abiding theme in the Chatham House Version. A
most curious and arresting expression of it occurs in a review by
Gibb of R. S. Stafford's T'ragedy oJ tka Assyrians. T}l'e book is an
account of the Assyian massacre carried out by the Iraqi Army in
1933, and of its antecedents. Gibb finds in the book sufficient evidence
of 'the goodwill of the Iraqi administration down to the last' and of
the Assyrians' fractious obstinacy. The Assyrians were standing out
for terms 'which, though ideally justifiable, would in practice have
made any coherent Iraqi state impossible'. The author, Gibb says,
goes no further than this, and perhaps not even quite so far. 'But one
reader at least', he continues, 'finds himself forced to the conclusion
that the final outbreak, however morally inexcusable, was in effect
a violent assertion that in an Arab Muslim state non-Arab artd non-
Muslim minorities have rights only in so far as they recogrrise that
fundamental fact. The fate of the Assyrians was directly due to their
refusal to accept that position, and it is difficult', adds Gibb, 'to see
that any prolongation of the mandate and its equivalent could have
affected the ultimate issue.'r06 Original as it is, the argument that the
Assyrians were really responsible for their own massacre sheds light
on an attitude and a state of mind, rather than on Iraq in 1933. For
what Gibb calls'a coherent Iraqi state'was no necessary part of the
natural order of things; the mandate did not have to end when it
did and as it did, and if matters had been managed diflerently this
would have certainly afiected 'the ultimate issue'. It is Iraq where
Arab Sunni supremacy was established and entrenched by the British
mandatory which Longrigg holds up as the Proper example for the
French to have followed in Syria: 'The temptation to apply a separat-
ist policy - to govern by dividing', he admonishes the French, 'could
have been no less considerable in Iraq, with its well-marked Kurdish
Shi'i, Yazidi and Assyrian minorities, and its regionalism as between
north and south. Such a policy', he observes, his language here
hinting at a powerful temptation virtuously withstood, 'was resisted
by British as well as Iraqi authorities, with a broad wisdom which
even the tragic Assyrian episode of 1933 .. . does not discredit.'lo0
The bloodstained record of Iraqi politics after the mandate is hardly
the example to hold up to the French in the Levant. The irony of
this sermonising is enhanced by the fact that the Arab Sunnis in
fraq are a clear minority in the population, and that it is a minority
of this minority - an exceedingly small one of officials and ofrcers -
which had bestowed upon it the plenitude of power.
389
 THE CHATHAM HOUSE VERSION
If the Assyrians were ultimately responsible for their own woes,
there could be no doubt, on the other hand, that the 'Arabs' were
rather victims of injustice on the part of the Great Powers. Victims
of France, but also of Britain. It was one of the most important
themes of the Chatham House Version that the Balfour Declaration
was both impolitic and immoral, and that the Palestine problem was
the key issue in the middle east. Toynbee's own writings, reviewed
above, arnply illustrate this outlook. But he was by no means the
only one heavily to disapprove of British encouragement of Zionism.
Had it not been for the Jews, declared Gibb in a comment on Tolm-
bee's address on 'The Present Situation in Palestine' delivered at
Chatham House, Palestine would have been only a district in some
larger state, and such a development was indeed only a matter of
time, for an independent Palestine was 'an anachronism'. On the
same occasion Gibb added that if the British had'encouraged Zionist
aspirations in Palestine in order to form a buffer state for their own
se}fish aims, and had hidden those aims behind a mask of altruism,
then the blood of the Jews be on the head of those who had done
this thing'.roz The British, then, were guilty. They were guilty not
only collectively, but also individually. As Gibb put it on a later
occasion: 'each one of us who lives in a democratic country is, in a
sense, individually responsible for it [the near eastern problem]',
and:'The near east is not only on our hands but on our hear.ts'.lo8
British guilt is clear, and it admits no extenuation: 'What is much
worse . . . and genuinely perplexing', declared Gibb, 'is that a govern-
ment which professes the principles of democracy should deceive,
and keep on deceiving, its people, firstly by concealing its imperial
objects behind a mask of idealism, and subsequently by refusing to
disclose both its original commitments to the Arabs and the fact that
it has been forced in consequence into a policy which is abhorrent to
the traditions of its people and furnishes ammunition to its
enernies.'roo Moral indignation is a bad counsellor, else the suspicion
that the British government was out to deceive the sharif Husain
might have been more carefully scrutinised.
But, in any case, if one is to set up as moral censor, one might bear
in mind that the guilt of governments and peoples cannot be ascer-
tained with the summary methods of a drum-head court-martial.
Consider: the British government is declared guilty of encouraging,
for its own selihsh reasons, Zionism, an alien creed and a harmful
movement; but yet, at the same time the British government clearly
3go
 THE CHATIIAM HOUSE VERSION
encouraged Arabism, also for its own selfish reasions. Can we not say
that this also was a crime, which foisted an alien creed and a harmful
movement on a middle eastern society much.too diverse and compli-
cated and delcate for such crude simplifications? If the British are
adjudgedguiltyof promoting Zionism, they must likewise be adjudged
guilty of promoting Arabism. Equity demands no less.
But such perplexities and ambiguities do not sit well with the simple
certainties and the draconian verdicts of the Chatham House Ver-
sion. British bad faith and deception are clear and not to be gainsaid.
A plea, however, of diminished responsibility can be entertained.
Gibb remarks that Antonius is 'justified in stressing the virtual control
of public opinion in Britain and the west by the all-pervading Zionist
propaganda'.rro flf5 Zionist propaganda had clearly acted to lead
astray governments and peoples from the first world war onwards.
Thus Longrigg declares that the recommendation of the Bunsen
Committee in r9r5 that Palestine should be internationalised - a
decision which the Zionists greatly disliked and opposed - was one
'in which a considerable element w!ls, no doubt, the pressure of
Zionist spokesmen on British ministers'. This author goes even further
and states quite flatly that 'The immediate baclcground to the issue
of the Balfour Declaration was one of pressure on the British cabinet
from British and American Jewry' and that 'the pressure of Jewry
on successive British governments was sufficient fatally to preclude
the adequate acknowledgment of Arab right5'.rrr Such an account,
of course, woefully misconceives the situation; for it was not 'Jewish'
or even 'Zionisf' pressure which had led to the issue of the Balfour
Declaration; Jews and still less, Zionists, were not as powerful as all
that. It was, among other things, eagerness by the British government
to use Zionism in order to do away with the rights which they had
themselves shortly before conceded to the French in Palestine.
Arabism was used to the same purpose in the Levant, and we may
therefore say that, far from being considered rivals or enemies,
Zionism and Arabism were, in British eyes, movements which com-
plemented and reinforced one another.uz
The Chatham House Version relating to Palestine has yet another
characteristic. It takes for granted that the Palestine problem was the
most important, indeed the key issue, in middle eastern politics.
Kirk's way of putting the matter is representative. 'They [the Zion-
ists]', he wrote, 'studiously refrained from allowing themselves to
consider to what extent, in default of the White Paper policy, Arab
39r
 THE CHATHAIT! HOUSE VERSION
political agitation, strikes, sabotage, etc., might have interfered with
the British middle east war+ffort in r94ez and consequently with
the Persian supply-route to the USSR - and what the ultimate conse-
quences might then have been, for the National Home, for world-
Jewry, and for all mankind.' And again: 'Rashid 'Ali's pro-Axis
putsch in Iraq in r94r ... mighthavefoundmuchgreatersupportin
other Arab countries had it not been for the appeasing effect of the
White Paper on moderate Arab nation4lissl'.l8 The assumption here
is that British policy in Palestine vitally affected all other develop-
ments in the Arabic-speaking world. It is no doubt true that in 1938-9
the British government thought it prudent to discourage the Zionists
and encourage their opponents; but to argue retrospectively that it
was this policy which prevented anti-British and pro-Nazi movements
in the middle east is clearly untenable. For, in the first place, such
movements did manifest themselves; if they were inefficacious this
was not thanks to the Palestine White Paper of 1939, but to swift
military action by the British which, owing to their remoteness and
preoccupation elsewhere, the Axis powers could not checkmate. It
was, further, an illusion to suppose that all British problems in the
middle east stemmed from the Balfour Declaration. British relations
with Iraq, Egypt or Iran, say, were bedevilled by purely local issues;
and again, Balfour Declaration or no Balfour Declaration, an activist
and initially successful Germany was bound to - and did - attract, for
a time, a large and influential following.
Tolmbee, as has been shown, believed in the practical uses of
history and had no compunction in exhorting and advising. The
Chatham House Version, too, purported not only to give an account
of middle eastern history, but to show what lessons for future policy
this history disclosed. This didactic function reached its apogee
during the second world war. In an address on 'Middle Eastern Per-
plexities'given at Chatham House in July 1944 Gibb declared: 'In the
middle east, at least, we have only one alternative before us: either to
do the big thing, or to crash. But my heart sinks when I think of some
of our political leaders and their followers, of the strategists and the
vested interests, and the difficulty of getting public opinion in Great
Britain to understand the problems of the middle east.' Britain had
to assist in the reconstruction of the middle east, and her 'only chance'
to do so would be for her to work with and through 'the progressive
intelligentzia' and'to by-pass the attempts of the local governments
to stir up trouble'. In this task 'we should', he said, 'be well-advised
392
 THE CIIATHAII HOUSE VERSION
in every way to invite Russian cooperation from the beginning.
. . . I have long held', he went on, 'that the USSR has an invduable
contribution to make towards the solution of some difrcult political
and social questions in Asia, in which we have no experience to guide
us, while the Russians have.' But he was prepared to go farther. The
'progressive elements' in the middle east would prefer that the initia-
tive in reconstruction should come from Britain: 'But if we fail them,
there is still an alternative. That alternative', he afrrmed, 'is Russian
leadership; and I have no doubt whatsoever that if we are content
to go on muddling along Ers we have done in the last twenty-flve years,
then it will be in the real and best interests cf the middle east and
of the world that the Russians should step in and take from out hands
a task which we shall no longer be fit to gvsssfs.'llr
Also towards the end of the war, the Chatham House Cairo Group
produced a paper on Greal Britain and the ll[iild,l'e Easl which, like
Gibb's address, made recommendations for a postwar policy. The
paper listed various possible policies and discussed their advantages
and disadvantages. Britain could either rule the area directly - which
was unlikely - or indirectly by means of puppet states - which was'
also improbable. It could also attempt to safeguard its interests by
means of 'disintegrative dliances, i.e. by alliances with one or more
local states or groups which would most likely represent minorities
so far as the whole middle east was concerned, on the principle of
Divide et Impera'. This, which is the classic policy of a power with
Britain's position in the middle east 'would mean placing reliance
upon a close association with the non-Arab peoples of the area and
emphasising the difierences between the Arabic-speaking group.
Such a policy might, for example, seek to continue to treat Egypt and
Iraq as individual nation-states whose connection with their Arabic-
speaking neighbours was sentimental rather than actual, and to
depend upon alliance with them and with Turkey and an expanded
Jewish State in Palestine. This policy', the paper declared, 'might
commend itself to those who do not know the middle east because of
the continued existence of the tendency not to take the Arabs
seriously.' This policy clearly did not commend itself to the group.
What they favoured rather was an alliance with 'the majority group
of the area, i.e. with the Arabs'. It is, said the paper 'based on the
fact . . . that the core of the middle eastern area is Arabic-speaking
and that there is a great and growing desire for unity on the part of
its peoples.' This in fact was the actual British policy, and it had
393
 THE CHA?HA}T HOUSE VERSION
been quite successful: 'It is not too much to say that it would not
have been possible to have defended Eglryt successfully against the
Axis if the Eglrytians had been hostile and, in spite of the Rashid
Ali episode, in r94r, the situation in Iraq during the present war has
been surprisingly favourable to British interests.' The policy, t}e
paper afrrmed 'has stood the test of war extremely well', and was
clearly the policy to adopt after it. Some two years after the end of the
war, H. S. Deighton, chairman of the Cairo Group from 1943 to
1946 was still maintaining that this was the only possible policy for
Britain. 'It is clear', he wrote in an article, that the policy of support-
ing the Arab League is the only alternative to the complete abandon-
ment of the middle east . . . and given the fact that the British govern-
ment has decided to maintain itself in the middle east, the only
possible policy - the only defensible policy perhaps - is that of friend-
ship with the majority.'ll0 The events which followed and the ruin of
the British position in the middle east are sufficient commentary on
this prescription.
The prophets thus, to borrow Tolmbee's expression, did prophesy
falsely. The issues on which they prophesied are now dead and gone,
and do not matter any more. The desire to prescribe and prophesy
was however clearly one main reison why the Chatham House
Version, as has been shown, also failed as history. And this is perhaps
the more serious matter. As for prophecy it may be that, as the poet
wryly observed,
We are only undeceived
ol that which, deceiving, could no longer harm.ru

394
 Notes

r The Middle East and the Powers

r In the Foreword to The Prcceeilittgs of the First Muslim-Chrislian
Conaocation, n.p., n.d. (rsSS?). See also E. Kedourie. The American
University of Beirut' it Midd,le Eastern Studies, vol. III (t966-7).

z Cairo and Khartoum on the Arab Question, rgr5-r8

r Wingate Pafers, School of Oriental Studies, Durham tiniversity
(hereafter referred to as W,P,), fiJe r4rl4,
z W.P., file r3415.
3 Curzon to Cromer, 9 June r9r5, W.P., file 13417.
4 The other members of the committee were Mr G. R. Clerk of the
Foreign Office, Sir T. W. Holderness of the India Office, Admiral Sir
H. B. Jackson of the Admiralty, Major-General C. E. Callwell of
the War Ofrce, Sir M. Sykes and Sir Ll. Smith of the Board of Trade.
There is a copy of ils Report it
t};le Auslen Chamberlain Papers (Box
AC 19) at Birmingham University.
5 W.P., file r3513.
6 Telegram from Wingate, Khartoum, to Clayton, Cairo, 15 October
rgr5, W.P., file 135/4.
? W.P., frle r35/r, note of z4 July r9r5.
8 W.P., flle 135/4, letter to Gen. C. E. Callwell at the War Office,
London, 19 October r9r5.
g W,P., flle 135/5, telegram from Wingate to Clayton, 14 November
I9I5.
ro W.P., flle 135/4, letters from Clayton to Wingate, g ard z7 Oct. r9r5,
and file 135/5, telegram from Clayton to Wingate, 13 Nov. r9r5.
rr Storrs to Col. O. A. G. FitzGerald, 8 March r9r5, quoted in J.
Nevakivi, 'Lord Kitchener and the Partition of the
Ottoman
Empire', K. Bourne and D. C. Watt (eds\, Studies in International
History, 1967, p. 3zo.
tz W.P,, file rSg/6,
395
 NOTES
t3 W,P., file r35lz, telegram from Wingate to Clayton, 3o Aug. 19r5,
and file 135/4, letter from Wingate to Clayton, zo Oct, r9r5.
14 W.P., fle 47olz, Wingate to Clayton, Vcry Priaale, 15 June 1916.
15 W.P., flle 135/6, where the English translation of the letters is
preserved.
16 See E. Kedourie, England onil, the Miilille East, 1956, p. 54,
17 Commander D. G. Hogarth, 'Position and Prospects of Ifing Husein',
Ard Bulletin Sufplemcntary Papers No. z, r March r9r8.
r8 Lt.-Col. C. E. Wilson, 'King of the Arabs', Arab Bulletin Supple-
menlary Paperc No. 5, z4 June r9r8.
rg W.P,, file 135/5. Wingate advanced the same argument in a letter
to General Callwell of z3 December, frle 4517.
zo W.P., file 135/5, telegram from McMahon to Foreign Office repeated
to Wingate in Clayton's telegram of 13 November r9r5, and letter
from Clayton to Wingate on 12 November.
2t W.P,, file t3517, McMahon's telegram repeated to Wingate in
Clayton's telegram of the same date.
zz See Kedourie, England anil the Middle East, p. 36.
z3 W.P., 6le 135/4, Clayton's letter to Wingate of 9 October r9r5,
cited above.
z4 See S. G. Haim, 'Islam and the Idea of Arab Nationalism' in W.Z.
Laqueur (ed.), The Middle East in Transition, 1958,
z5 See N. Bentwich, Wanilew Belween Tuo Wotlils, 1942, p. 75.
z6 W.P., file 135/6. Kitchener, it is interesting to remember, himself
proposed buying the French out in the Irvant in the autumn of
r9r5. On this and on the Alexandretta schemes, see Kedourie,
England anil the Mitldle East, pp.43-6, and Nevakivi, loc. cit.
z7 W.P., file 135/6, letter from Parker to Clayton, 18 November r9r5.
z8 W.P., file t35/6, Resulls of Second Meeting of Committee to disatss
Anb Question and Syria.
zg W,P., frle 135/6, Parker to Clayton, z8 November r9r5.
go W.P., frle 13517.
3r On this allocation of territory to the future Arab state see the
illuminating paper by E. Marmorstein 'A Note on "Damascus,
Homs, Hama and Aleppo"', in Sl. Anlony's Papers no. XI, 196r,
where the author convincingly argues that the plan, originating with
Sir Mark Sykes, is an echo of a paragraph in Gibbon's Decline and
FaIl which described the limits of Muslim territory after the initial
conquests of the Crusaders. Evidence to conflrm Mr Marmorstein's
view occurs in a passage by Rashid Rida in which he says that in
June r9r7 he heard from one of Sir Mark Sykes's Syrian collaborators
'that he understood from Sir Mark Sykes himself that they wanted
to give the whole Syrian littoral to France because this was the
396
 NOTES
territory which tbe Crusaders had occupied during the famous
Crusades'; al-Manar, XXII (r9zr), P. 452.
32 W.P., fle r35lz.
33 W.P., f,.le 135/4, dispatch from McMahon to Grey, z6 October r9r5.
34 In a letter of r November r9r5, Wingate informs Clayton that he had
discussed the boundaries offered to the sharif with al-Mirghani and
explained to him why reservations to the sharif's proposals concern-
ing Syria, Palestine and Mesopotamia had to be made (W.P., ile
r35/5).
35 W.P., file 136/r, letter to Clayton, zo January 1916.
36 W.P., file 47olz, Wingate to Clayton, z4 April 1916.
3I W.P., file 136/6, letter to Wingate, zzMay r9t6.
38 D. G. Hogarth, 'Wahabism and British Interests', Journal ol lhe
British Institute of International Afiabs, IV (1925), pP. 72, 73.
39 W.P., file 13515, note by Storrs, rz November r9r5.
4o W.P., frle 1613, telegram from C. E. Wilson, Jedda, to Wingate,
13 November 1916; file r43lr, telegram from McMahon to Wingate,
14 November, and file 143A/6, letter from Clayton to Wingate,
23 November.
4t W.P., file t36fz, verbal message attached to note by Storrs, z6
February 1916.
42 W.P., file 136/5, telegram from Wingate to Clayton, z3 April 1916.
43 W.P., file 46[.
44 W.P., frle 136/r, letter to Wingate, 17 January 1916.
45 W.P., file 136/6, letter to Wingate, 8 May 1916.
46 W.P., f,Je 136/2, letter to Ibrahim Dimitri, z8 February 1916. A note
by Storrs of 5 December r9r5 (file 135/7) records that Rashid Rida
called at the residency in Cairo and was given details of thc offer to
Husain, of the ambiguity of which he complained.
47 W.P,, file rSS/g. The note is unsigned and undated.
48 See Kedourie, England anil the Miidle East, p. 62,
49 Ibid., pp. rr3-5.
5o W.P., file 145/3, note by Clayton, ro March r9r7, commenting on a
request by Sykes to assemble Arab delegates to meet him on a
forthcoming journey to Cairo.
5r W.P., flle r39l5, letter of 7 August 1916.
5z W.P., frle 145/3, telegram from Foreign Oftce to high commissioner,
Cairo, 14 March r9r7.
$ W.P., file l4514, memorandum by Clayton, 3 April r9r7.
54 See Kedourie, England and the Mitld,le East, pp.37-8 and 97-8.
SS W.P., fle r4517, memo. by Clayton for Symes, z7 May t9r7.
56 W.P., file r39/3, telegram from Wilson, Jadda, to Wingate, 9 August
r9r6.
57 The sharif's words recorded in a note by Fuad al-Khatib, the deputy
397
 NOTES
foreign minister, takerr down by Lieutenant-Colonel Newcombe,
W.P., ra5l7.
58 W.P., frle 14517, memo. by Wilson, z4-7 May rgr7.
59 This was apparently the length of the last interview. Sykes and
Picot saw the sharif in Jadda on 18 and 19 May, but Sykes had seen
both Faisal and the sharif on z and 5 May respectively, and explained
to them the topics which would be discussed on his return with
Picot (W.P., file 4517, telegrara from high commissioner, Cairo, to
Foreign Office, 8 May r9t7).
6o W.P., file 14517, note by Lieutenant-Colonel Newcombe, zo March
r9r7.
6r al-Ma.nar, XXXIII (rS:S), p.ZgZ.
6z W.P,, flle 148/8, letter to Wingate, zr April r9r8.
63 lV,P., fiLe t46lr, note on tl:,e Anglo-FrunceRussian Agrcement
about lhe Near East, by D. G. Hogarth, S July rgrTi a letter from
Wingate to Hogarth of rz August l9r7 (file 146/3) indicates that the
note was written to be shown to the authorities in London.
64 file r45l8, particularly dispatch from Wingate to Balfour,
See 14.P.,
rr
June r9r7.
65 W.P.,file 146lro, telegram to Foreign Of6ce, z8 November r9r7.
66 W.P., ftJe 4glr, dispatch from Ctayton, r July r9r8.
67 See Kedourie, England and the Middle East, pp. ut-2.
68 W.P., file r48lrz, telegram to Foreign Office, 16 June r9r8.
69 Dispatch of zr September r9r8 from Wingate, Cairo (W.p., file
r4e17).
7o Austen Chambeilain Paperc (Box AC zo). Sir Keith Hancock in his
Smuts, vol. I, 1962, indicates (pp. +S8-9), that both L. S. Amery,
then a member of the war cabinet Offices, and Smuts himself, were
opposed to the Sykes-Picot Agreement. Smuts considered it .a
hopeless blunder of policy'. See also W. K. Hancock and Jean van
der Poel (eds.), Selections Jrom the Smuts Paperc, 1966, vols III and
IV, which reproduce letters from Amery to Smuts dealing with the
middle eastern settlement: nos 8zo and 848 in vol. III, and par-
ticularly no. 86r in vol. IV, a letter of 19 November r9r8 where
Amery insists on the necessity of taking French acquisition of
Alsacc-Lorraine into account: 'It may be justice that she should
gct it. But the fact remains that she gets an asset of very great value
for which all the rcst of us have fought and sufiered enormous losses.
If France gets nothing but Alsace-Lorraine and the rest of us divide
up the German colonies and the near east, we shall still be heavy
losers financially, and it doesn't seem to me equitable that France
should claim, in addition to Alsace-Lorraine, a share in such small
"profits" as there may be, unless she is also prepared to pool the
total expenses'; in another letter of rZ Dccember (no. 866 in vol. IV)
398
 NOTES
Amery writes: 'I see no reason ...why palestine, the Arab state
[in Syria] and Mesopotamia should not find their welfare in per-
manent association with the British League of Free Nations . . .,.
7r W.P., f^le r5rlz.
7z U.S. Department of State Archives, telegrams from Laughlin to
Lansing, Ircndon, ro and 14 October tqg (767.gobt4lt and, z).
?3 W.P,, fi.le r48/ro, note by G. S. Symes, 13 June r9r8.
74 Tout of Duty, 1946, p. 5o.
75 G, Puaux, Dcur annCes ou Leaant, rg5z, p, 176,
26 K. D. D. Henderson (ed.), 1953. The quotation is from a letter to
J. W. Robertson, dated Cairo, rr May 1943, p. 326.
3 The Capture of Damascus, r October r9r8
rTerence Rattigan: Ross.. I Druma,tic porbait, 196o, p,
72.
z lbiil,, p. ro5.
3 Robert Graves, T. E. Lowence to his Biogrophcr, r93g, p. ro4.
4 Monroe, p. 62. Miss Monroe gives neither the date nor the provenance
of Clayton's report. The report is dated 8 October rgrg; a copy of it
is found in th.e Milnet Pap*s, New College, Oxford, an<l in li.p.
5 Zeilae, pp. 2S-7.
6 Longrigg, p.63.
7 See E. Kedourie, England and the Midiile East, p. rzr.
8 I am grateful to the Australian Army Headquarters, Canberra, for
permission to consult these war Diaries and to the director, Austra-
lian War Memorial, for help in this connection. See appendix for a
pr6cis of events based on the cliaries and compiled by me.
9 Oficial History of Austualia in the Wu z9r4-r9tg, vol. yll, Sinai
and Palestinc, by H. S. Gullett, rg31, p. ?52.
ro oficiol History of the war, Militory operations in Egypr and parcsrinc
fron Juw t9z7 to the end oJ the War,by CyilFalls, part II, pp. 523_4.
rr Gullett, p.ZS2.
rz Gullett, pp. 75842; Kedourie, England onil the Middle East, pp.
I20-t,
13 Gullett, p.764.
14 Kedourie, England ond the Miitdle East, pp. tr3-7.
15 Muhammad Kurd Ali, Khitot al-Sham (History of Syria), Damascus,
1925, vol. III, pp. r49 fn., and r54.
16 Seaen Pillarc of Wisdom (1935 ed.), p.675.
r 7 See Kedourie, Englanil and thc Midd,le East, p. ,.2r where
, the bulletin
is quoted from the Yale papers. This bulletin seems to have been
issued by Allenby's G.H.Q. in a news summary on z October. I am
indebted for this information to Dr M. veret6, Hebrew university,
Jerusalem.
r8 u.K. Admiralty, The Intetnationor siluation and, Gcnerar Intelrigence,

399
 NOTES

no. 336, r to 3 October r9r8, p. ro, Bodleian Library, Oxford'

19 U.S. National Archives, Department of State, Weehly Report ott
M ol!,erc Relaling to N e ar Eostcrn ffaits,
A 17 r 91 8, no' 37, P' 40'
October
zo Falls, p. 59r fn. In a popular account of Allenby's campaign,
Armageililon t9t8, tg64, P. r45, Captain Falls repeats the account of
the official history, writing, 'Australians and Arabs both claim to
have entered first, but the issue remains undecided'. The book throws
no light on the events here discussed.
zr Houseof Commons Debotes,3r October r9r8, col. 164o'
zz A detail mentioned in the British war history (P' 59r) is curious'
Lawrence, it says, went into Damascus at 7.3o in the morning and
General Macandrew with the r4th Cavalry Brigade followed him
into the city at ro.3o. Why, if 'we, the Arab leaders had waited for
the slower British', Macandrew should, in the end, still be preceded
into Damascus by the sharifians is not clear. can this be the origin
of'the oft-repeated story' that the entry of the British trooPs was
delayed, which Mr Longrigg, as has been seen, reftrses to credit?
z3 Seaen Pillarc, PP' tuo, 684, 636, 664,668-9'
z4 lbid., PP.664-6.
z5 lbiil., P. 66+.
z6 W. F. Stirling, 'Tales of Lawrence of Arabia', The Cotnhill, vol' 74,
1933, p. 5o9: 'Lord Allenby had allowed Lawrence twenty-four hours
to organise and instal a provisional government before the British
troops were to be Permitted into Damascus''
al-hikm fi
' Walih al-Haffar, 'Al-hukamdt allati ta'aqabat 'ala
z7
Soriya - I' (The Successive Governments of Syria), in Majallat
al-shurta ua'l-amn (Police and Public Security Magazine), vol' I'
no. 6, r5 June 1953, pp. 18 ff. I am grateful to Professor Salah al-Din
al_Munajjia for drawing my attention to this valuable series of
articles of which the first is quoted here. The author draws on local
knowledge and unpublished papers.
zg Note by captain c. D. Brunton, General Staff Intelligence, Palestine,
13 August r9zr, Palestine Government frle Pollzzz3, Israel State
Archives.
z9 'An Autobiography' by General Chauvel, typescript, pP' r42-.t'
Australian war Memorial, canberra. I am grateful to the Director
of the Memorial for allowing me to consult this typescript' The
Director states that there is no record of the date on which it was
written,orofthatonwhichitwasdepositedattheMemorial.The
same story emerges from a report by Chauvel of z October r9r8
in W.O.95j43 7t, file 2/96 wtrict, makes it utterly clear that Ayyttbi
was Lawrence's nominee.
(I Have Lived
3o Haffar, ibid, and Anis al-Nusuli,'Ishtu ua shahhadtu
and Seen), Beirut r95r, P. 16.

400
 NOTES
3t Seaer Pillots, p. 672.
3z Alec Seath Kirkbride, A Cruohle oJThotns, 1956, pp. 83. See also the
report of an eye-witness, Ali al-Tautawi, Fi bilad ol-Ar& (In the
Arab Countries), 1939, p. 53: 'We said, Who is the sharil? They
said, Faisal son of al-Husain, so hasten to give him welcome. We
rose up, but we did not go to welcome him. We went to slaughter the
fleeing army. When we finished with them we wiped their blood off
our hands and went to welcome the sharif'. Also, Abd al-Fattah
abul-Nasr al Yafi, Muilhahhirot qa'id arabi (Memoirs of an Arab
Commander), n.p., n.d., who states, p.zo7, that the Ottoman com-
mander had undertaken not to destroy anything in Da^nrascus and
had been promised that his troops would not be molested during
their retreat through Damascus. He goes on to say that this promise
was oot kept, that the soldiers were 'butchered'in many places, and
that but for the Jaza'iris' intervention none of the Ottoman troops
would have escaped. 'An eye-witness has told me', he goes on to say,
'that Damascenes were throwing the weak and wounded, who were
in a lamentable condition, over the balcony of the military hospital'.
33 A pamphlet published in Beirut in r9er, Hanna abu R5shid, Layali
al-'id fi waqa'i' al-Amir Sa'iil (Festival Nights in Celebration of Amir
Sa'id's Exploits), may throw some light on this enmity. The author
states that Lawrence's enmity towards the Jaza'iris stemmed from
the fact that he suspected them of having friendly relations with the
French, and feared that if they were in a position to gain Faisal's
ear, they would influence him in favour of the French connection.
It seems a likely explanation.
34 lJafr.ar, loc. cit., gives the text of Nasir's mandate to Amir Sa'id
al-laza'iri.
35 ftpy it W.P., frle t4g/7. The reference to French liaison ofrcers is
explained by a telegram from the War Office dated z5 September (a
copy of which is found in the same file) in which they tell Allenby that
they had informed the French that 'it would be desirable if General
Allenby advances to Damascus, that, in conformity with Anglo-
French agreement of 1916, he should, if possible, work through an
Arab administration by means of a French Liaison Officer',
36 Letter reproduced in Muhammad Jamil Bayhum, Sutiya ua Lubnan
rgrS-r922 (Syria and Lcbanon rgrS-rgzz), Beirut, t968, pp. 74-5.
37 Anwar al-Rifa'i, Jihd nisf qarn (Half, a Century of Struggle),
Damascus, n.d., p, 93.
38 Arab Bulletin, no. 64, z7 September rgr7.
39 Anwar al-Rifa'i, Jihd, nisf qarn This book contains an interesting
collection of documents relating to the Jaza'iri brothers and their
relations with Faisal and the Sharifans. Faisal's lrar-time letters to
Sa'id and the Ottoman commander of the Fourth Army in tgr7 are

40r
 NOTES

reproduced on PP. 8?+z; the affair of the Sharifan standard is

mentioned onq.79, and the text of the proclamation issued when the
Jaza'iris took over from the Ottomans in Damascus is reproduced on
PP. 9}ror.
4o See appendix, below, and Kedourie, England and the Miildlc Easl,
pp. tz2-7. W. T. Massey, a journalist accompanying Allenby's
forces, deserves great praise. His narrative in Allotby's Final
Tilumph, r9zo, sober and unpretentious, is confirmed in all essentials
by the other sources and official documents. This is all the more
rvorth saying that in Seaen Pillarc Lawrence dismisses with a con-
temptuous torre the journalists' rePorts about the Damascus
disorders.
4t Kirkbridc, A Crachle of Thorns, P. 9.
42 Sir Hugh Foot, I Slart in Freedom, tg6+, p. 72.

4 Sir Herbert Samuel and the Government oI Palestine

r Quoted in John Bowle, Viscount Samuel, t957, P. t7t-
z Quoted in Bowle, Viscount Samuel, P. 176.
3 Viscount Samuel, Memoirs, 1945, p. r48'
4 F.O. 8oolzr5, Balfour Papers, Samuel to Balfour, z7 March r9r9.
5 Report of the lligh Commissioner on tha Administtation of Palesline
rg2o-r925, Colonial no. r5, t925, P. 27.
6 pp. r5o-r.
7 P. t68.
8 rr3 H.L. Deb. 5s., col. 99.
9 See memo. by Middte East Department of the Colonial Office,
16 February 1923, in Cab.zTlzzz'
to P.P. oot. XV (tgzt), An Interim Report ontheCiailAilminisbalionoJ
Palestine dwing the pcriod tsl July rg2o-3o Juw t9zr, Cmd. 1499'
rr ro6 H.L. Deb. 5s. col. 8o7'
rz Telegram from Allenby to Curzon, Very Urgent, Private and very
Confidential, Cairo, May rgzoi Documenls on Biltish Foteign Policy,
6
rgry-rg3g First Series, vol, XIII, 1963, no. 246.
r3 Chief Political Officer, Cairo, 9 October r9r9, to Chief Administrator,
Occupied Enemy Territories (South), Palestine Government flle
Pol/zro8, Israel State Archives.
r4 F.O. 37rl5tzr, nle E gtZglS5l44, which contains the full Report of
the Court of Enquiry.
15 See the Report of the Court of Enquiry mentioned above and
Allenby's telegrams, 8 and 18 Mar. r9zo, reproduced in Documcnts
on Brilish Forcigr Policy ryr9't939, First Series, vol' XIII, nos z16
and zz3. In an undated draft memorandum on the Jerusalem riots
of May r9zo, Storrs mentioned the presence in Jerusalem at that time

402
 NOTES
of unauthorised Sharifian o6cers in close touch with the local
authorities, whose activities no attempt was made to shackle. Slozrs
Papers, Pembroke College, Cambridge, box III/I.
15 See E. Kedourie, Afghoni and'Abduh,1966, pp. 37-8.
17 In view oI Hajj Amin's subsequent connection with the Nazis, and
of their sponsorship of the 'Gross-Mufti' as a leader of all the Arabs,
this remark by Grobba, the German minister at Baghdad in the
r93os, is of interest: 'Although', he writes in his memoirs (Mdnner
unil Mdchtc im Oient, t967, p.9), 'I know that the rank of a Grand
Mufti does not exist in Islam, I have nevertheless described Haj j Amin
al-Husaini as Grand Mufti because he is known as such in Germany'.
18 Summary of the law in an address by Samuel of July r9zr, copy of
which is found in C.O. ZSSIS+ appendix to a dispatch, secret,
Jerusalem, 9 August r9zr, The law dates from 13z6; presumably
this is the Ottoman financial, and not t}l,e hijri year and therefore
corresponds to c. r9ro.
r9 Palestine government frle Pol.lzz\7, for texts and translations of
these petitions.
zo These two dates are given by Haj j Amin in two different applications for
a passport; Palestine government file n o. H,l5Sz,Israel State Archives.
zr Report of the Royal Commission on Palestine, cmd. 5479 GSlZl,
p. r77; Report of the Court of Enquiry into the Easter Disturbances,
Jerusalem r9zo, F.O. 37rl5rzr.
zz Palestine government flle C.S. ro6/r, Israel State Archives. A note
by Storrs's 'little Persian agent Ruhi' (see Ronald Storrs, Orienta-
tions, d.efifitive ed., 1943, p. r49) states that it was at his suggestion
that Samuel pardoned Hajj Amin. Ruhi, it would seem, either
accompanied Samuel or was sent ahead of him to Salt; Slozzs
Papers, box III/5.
23 Palestine government file Pol.lz,zz3, Israel State Archives.
z4 Pol.lzz87
z5 Pol.lzz87.
z6 Storrs, Orienlations, p. 334.An entry in Storrs's Diary of zz Decem-
ber r9r7 speaks of the mufti Kamil as being a 'Mufti by right of
descent'; Stons Pafers Pembroke College, Cambridge, box II/5.
z7 N. and H. Bentwich, Manilate Mernories, 1965, p. r9r, suggest that
the lay members of the electoral college cast their votes under the
influenceof Raghib al-Nashashibi. The number of votes cast for
Hajj Amin is indicated in a note by Dr M. D. Eder of the Zionist
Commission giving details of an interview with the Civil Secretary
on zr April; it was the Civil Secretary who informed Eder that the
government was surprised by Jarallah's election; D. M. Eder, Notes
from Letters and Reports, tgtg-2r, Zionist Central Archives,
Jerusalem, Collections r r/4r.
403
 NOTES
zB Pol.lzz87, and C.O. 733/3 dispatch no. 92, Secret, 9 May tgzr
(Political Report for APril).
z9 Translation of the notice in Pollzz87,
3o C.O. 233/3, disPatcb no. 52, secret, cited above.
3r Storrs, Oricntdiotts, P. 3r3.
3z There is a hint of this in Storrs, Orientalions, P. 32o.
33 F.O. 37r15267, file E. 9433/83$144 and F.O. 37r15268, files E.rr7zo,
rt$51$6144.
34 C.O. :4,3128, private letter from Samuel to Shuckburgh enclosed
with confrdential dispatch, z7 December tgzz.
35 C.O. n3l4?, Dispatch, Confrdential, fromClayton,6luly t923.
36 C.O. 733128, minutes on conference, dispatch of z7 Decembet 1922,
cited above.
37 Samuel Correspondence, Israel State Archives. I am very grateful
to Sir John Richmond for permission to quote from this letter.
38 Pol.lzz87.
39 Pol./2287, letter of ro May r9zr, in Arabic signed by Jarallah, on
behalf of tbe legal secretary, informing Hajj Amin that in view of
Jarallah's withdrawal the high commissioner had appointed him
mufti of Jerusalem. The document was probably to be used if the
high commissioner proved agreeable but it is clear that no use wasi
made of it since, as will be seen, Hajj Amin never received a letter of
appointment.
4o Pol,lzz87. It may be that Storrs seconded Richmond's efforts on
behalf of the mufti lor the memo ends: 'It is worth noting that
notwitlstandiug that itis known that your Excelleocy and Mr
Deedes have both assured Hajj Amin of his appointment, Ragheb
Nashashibi continues to state openly that at all costs this shall be
prevented. Mr Bentwich confirms the continued efiorts of Ragheb
Nashashibi in this direction. I have informed the governor of
Jerusalem who has spoken to him on the subject', Bentwich, Mandate
Memories, p. r9r, declare that Storrs, with Richmond, persuaded
Samuel to appoint Hajj Amin.
4r Palestine Royal Commission, Report, P. r77,
42 Pol.l2287, Richmond's letter of 20 October tgzr to the high com-
missioner. See also his note to the frnancial secretary of z August
rgzt ard his tetter to the civil secretary of z5 October r92r. Rich-
mond's argument for the primacy of the mufti of Jerusalem was that
in Ottoman times the sanjah ol Jerusalem was not subordinated to
ary oiloyet and was attached directly to Istanbul. This of course
established no more than that the mufti oI Jerusalem was on a Par
with the mufti of any other dlayel. Richmond also had recourse to
a piece of rhetoric which he attributed to Storrs to the effect that
Jerusalem was a Place of 'some special renown and honour''
40.4
 NOTES
43 Palestioe government ile Pol.l445l&, Israel State Archives.
44 rrr H.L.Deb. 5s., 8 December 1938, col. 423.
45 p.t67.
46 R. Meinertzhagen, Midille Eost Diary, 19rT-1956, 1959, p. 58.
47 F.O. 8oolzr5. Balfour Papers.
48 C.o. $rl\ss.
49 C.O. $7l81z. Deedes to Shuckburgh, Jerusalem, zz November
r9zr. [n his evidence before the cabinet committee set up in r9z3
to consider Palestine policy Samuel stated that before the mandate
went through he considered whether Art. 4 (which gave the Zionist
organisation a special and privileged status) 'ought not to be elimi-
nated'. Weizmann however was 'excessively alarmed and said that
their prestige would be gone'. If Art, 4 were removed, the movement
would 'almost come to an end' as this would be taken to mean that
the British government had gone back on its promises. Therefore,
Samuel added, nothing was done at the time: See Cab. zTlzzz,
meeting of 9 July 1923.
5o Palestine Government Gazette, no. 43, p. 4,
5r C.O. 738/8, dispatch no. 55r, z9 December r9zr.
5z p. r8r. In a letter of ro April rg37 to the secretary of the Royal
Commission on Palestine, the chief secretary of Palestine stated that
the income trom awqaf properties amounted then to LP67,7gg; ia
addition the president of the Supreme Moslem Council controlled
some LP5o,ooo, being funds administered on behalf of minors and
orphans. The president also controlled 'considerable' amounts of
money donated by Muslims abroad for the repair of Muslim holy
places and the relief of poor Muslims: for instance, the money
collected for the repair of the Aqsa mosque amounted to LPrzo,ooo.
The council appointed seventeen judges of Shari'a courts, five muftis,
thirty-eight clerks, and twenty-eight process-servers. The council
also appointed marriage officers in towns and villages who received
fees rather than salaries. See C.O. n3b47, fle 7555o157.In addition
of course, the council had in its gift numerous posts relating to the
management of the religious endowments.
53 The Report of the Royal Commission on Palestine describes briefly
(pp. r79-8r) how this situation was allowed to develop from rgzr
to r936.
54 Op. cit., ts38, pp. 168-9.
55 Israel State Archives, file no. 263o.
56 See for instance, Friday sermons by Shaikh Abd al-Qadir al-Muzaffar
and Shaikh Sai'd al-Khatib quoted in appendix D.I. to the Political
Report for March 1923, C.O. 133144.
57 Colonial no. 15 (1925) , p. 45,
58 Letter from Jamal al-Husaini, 3o March 1923, enclosed with dispatch
405
 NOTES
from Samuel, no. 596, 15 June 1923, included in Cab. zTlzzz.
Sg P.P. aol. XXV (tgzi, Polesli*e: Pafers reloting to the Elections for
thc Palestinc Lcgislatiue Council t94, Cmd. 1889, p. 9'
6o C,O. 7$142.
6r C.O. 133143, minute of 13 March 1923 on telegram dated ro March
reporting on the boYcott.
6z Samuel's dispatch, no. 596, 15 June 1923, in Cab. z7lzz.
63 C.O. n3l5o, Samuel's telegram of rr October t923'
64 Note of an interview with offcials of the Arab executive, 3o November
r93r, Israel State Archives,'Awni Abd al'Haili Popers, box r55'
65 This scheme with which Colonel Waters-Taylor, Bols's chief-of-
staff, was connected may have been a factor in precipitating the
Easter riots at Jerusalem shortly afterwards; see the report of the
Court of Enquiry into the Easter disturbances, F.O. 37rl5rzr.
66 Samuel to Curzon, z April tgzo, Documents on British Forcign
Policy 1919-2939, fi.rst series, vol. XIII, no. 235.
67 Samuel to Curzon, 14 May r92o; Samuel Correspondence, Israel
State Archives.
68 The correspondence between Samuel, the Colonial Office and the
Foreign Office is quoted from Palestine government file Pol./435/r,
Israel State Archives.
69 C.O. n3b2o, telegram from chief Secretary, 23 November 1936.
7o C.O. :4.3b2o, copy of telegram from Foreign Office to Sir A. Clark
Kerr, z8 November 1936.
7t C,O. n3l2o, copy oI telegram to Sir M. Lampson, 16 November 1936.
7z Ormsby-Gore to Samuel, 15 September 1936 ; Samuel Correspondence,
Israel State Archives.
73 Alan Houghton Brodrick, Neor to Grcalness: A LiJe of the Sitth
Eail Winterton, 1965, PP. 183-4.
74 ro6 H.L.Deb.5s., zo July ar,dzr July 1937, cols.64z and 8r5.
75 Samuel to the colonial secretary, 7 April 1938, Samuel Cor-
respondence, Israel State Archives.
76 Note by Samuel oI a meeting with MacDonald at the Colonial Office,
17 October 1938; Samuel Correspondence, Israel State Archives.
77 ttt H.L.Deb., 5s., 8 December 1938, cols. 427-8.
5 Sa'd Zaghlul and the British
r The article is reproduced in Abbas Mahmud al-'Aqqad, Sa'd Zqhlul,
Cairo, 1936, pp.65-6.
z In his Report on Egypt for r9o5, Egypt No. r (19o6), Cmd. 2817,
Brilish Padiamentary Paperc, vol. CXXXVII, 19o6, Pp. 15-6.
3 See Muhammad Rashid Rida, Tarihh al-ustailh al-imam (History
of the Teacher and Leader [i.e' Muhammad Abduh]), vol. I, r93r,
P. 593'
4c,6
 NOTES
4 Ahmad Shafiq Pasha, Mudhahhiruti fi nisf qant (My Memoirs of
Half a Century), 1936, vol. rr, part 2, p. 22.
5 Ahmad Shaf,q, Memoirs, pp, ro2, rtz atd. rzg.
6 C. C. Adams, Islam onil Moiletnisw in Egypt, 1933, p. 229.
7 The address is printed in 'Aqqad, pp. 154-5.
8 Kitchener's letter to Grey, 7 March rgrz; F.O. 8oo/48, Grey Papers.
9 This is suggested by F. Charles-Roux, 'L'Egypte de l'occupation
anglaise 6 l'independence egyptienne', in G, Hanotaux, Hisloirc ile
la nalion egyptienne, vol. VII, r94o, p. 228. This was also the opinion
of the nationalist leader Muhammad Farid; see Muhammad
Subayh, Mawaqil hdsima fi torihh ol-qounniyya al-arabiyya (Decisive
Episodes in the History of Arab Nationalism) , ry64, vol. z (which
reProduces large extracts from Muhammad Farid's memoirs), p.
27r,
ro Muhammad Farid memoirs in Subayh, Decisive Episodes, p.2Zr.
rr Later on in the session, Zaghlul was taxed by fellow-members with
raising a hue and cry about the awqaJ, while he made no objection of
any kind to the setting-up of a Ministry of Agriculture which raised
identical issues. His rejoinder was lame, laboured and sophistical;
see Government Egyptien, Assembl6e legislative, Recueil iles comptes-
rcnilus des sCances, session rgr3-r4, Cairo, r9r4, passdm and Ahmad
Lutfi. Hafiz, Sa'd Zaghhi fi hayatihi al-niyabiyya (Sa'd Zaghlul's
Parliamentary Life), Ca*o, rgz7, vol. r, pp. t4842.
rz Memorandum reproduced it Documents Collccted fot the Information
of the Special Mission Appointeil lo Enquire into the Situalion in
Egyft,vol. r, pp. 89 fi., F.O. 848/r.
13 F.O. 4o7lr8z, nos. 2r and 23, telegrams of z8 March and 4 April r9r4.
14 Ahmad Sha6q, Memoirs, pp.2Z2,3So.
15 Docunurrts Collecteil for , , . the Special Mission . . ., vol 2, p. r38,
telegrams from Cheetham to Grey, 12 December r9r4, and Grey's
answer, 15 December F.O. 848/1.
t6 Documents Collecteil for . . . the Sfccial Mission . . ., vol. 2, p. 24,
note by Sir W. Brunyate enclosed with dispatch from Wingate,
z4 Nov. r9r8, F.O. 848/r.
17 l*tter from Wingate to Hardinge, 29 November tgt7, W.P., 14618.
18 Documents Collected for . . . the Special Mission. . ., vol. r, pp. 193-5,
telegram from Wingate, 9 December tgt7, and telegram from
Balfour, 13 December, F.O. 8a8/r.
19 Wingate's letter to Sir R. Graham, 9 June rgt9, W.P,, box 163.
zo 'Since these two interviews [with Zaghlul and rvith Husain Rushdi
on r3 November] which were evidently part of a pre-arranged plan
of campaign of which the sultan was - at any rate to some extent -
cognisant . . .'. Wingate's dispatch, confidential, 20 November r9r8,
F.O. 4o7lr83, no. r4Z.
407
 NOTES
2t for . . . the Special Mission. . ., vol. r, pp. 165-6,
Docurflenls Collecled
F.O. 848/r, dispatch from Wingate, z3 lruJy tgr7.
zz .tts l-nrd Lloyd put it in Egypt since Cromu; 1933, vol. I, P. z5g.
z3 F.O. 848/2, letter from Wingate to Hardinge, 3 November tgr7.
z4 Minute by Cheetham, 3r August r9r8, on a note by Greg, director-
general of the Eg'yptian Ministry of Foreign Affairs, enclosed with
confidential dispatch from Wingate, of same date, F.O. 4o71r83,
no. I33.
z5 Letter from Wingate to Graham, z4 March rgr8, W.P., and dispatch,
very confrdential, from Wingate, 3r August r9r8, F.O. 4o71r83,
no. r34.
z6 Dispatch of 3r August r9r8, F.O. 4o71183, no. r34.
z7 l*tter from Wingate to Hardinge, 19 October r9r8, W.P. ln a
dispatch of 8 October previous Wingate wrote: 'Since Sultan Fuad
succeeded I have observed a tendency on his part both to deprecate
the authority of his ministers and to neglect some of the essential
facts of the protectorate.'
z8 F.O. 4o71r83, no. r34.
zg I*tter from Wingate to Hardinge, 6 November rgr8, W.P.
3o Sir Charles Petrie, Life ont Lclters of Sir Ausl.en Chambeilain, t94o,
vol. z, p. 34r.
3r 'Note on the Main Points which have given rise to the Present
situation in Egypt', October rgtg, W.P.
3z Wingate to Hardinge, 3r January r9t7, W.P.
33 Documcnts Collecteilfor ...TheSpeciol Mission..., vol. r, pp. r98,
zotfi., note by Brunyate 14 November r9r7, enclosed with dispatch
from Wingate, 15 December; and letter from Wingate to Hardinge,
z4 December. F.O. 848/1.
34 F.O. 4o7/r84, r,o.246, note by an anonymous Englishman, enclosed
with dispatch from Allenby, 7 April r9r9, W. G. Hayter, a legal
adviser both to the residency and to the Egyptian government, in
the course of a letter dealing with Brunyate's pension, stated tbat
Brunyate's memo. was 'improperly' publicised by Rushdi together
with his reply; F.O. 37rl372g,frle r3gzSz,letter from Hafier to Sir
J. Tilley, 19 October r9r9.
35 See for instance his conversation with Haines, 8 December r9r8: 'He
said that for four years he had been reproached with having been a
traitor to his country . . .', Documenls Collecteil for . . . the Spccial
Mission. . ., vol. 2, p. 57, F.O. 848/r.
36 'Umar Tusun, Muilhahhira bima sailara'anna munilh fofu d-harcha
al-wataniyya ol-misiyyaminsanat t9t8 ila sanat rgzS (Memorandum
on our activities since the dawn of the Egyptian national movement
from the year r9r8 to the year rgzS), rg4z, pp. 4-ro.
408
 NOTES

37 Fu'ad asked Cheetham to dePort 'Umar Tusun, calling him un-

desirable 'as he felt he was an aspirant for the throne and was
plotting against him'; Wingate's letter to Hardinge, 18 November
tgrl, Docurrunls Collecled lor , , , the Spcciol Mission . . ., voL' 2,
p. 12, F.O. 848/r.
lor . , , the Spcciol Mission . . ., vol. 2,P. 37,
38 Documents Collcclcil
dispatch from Wingate, z8 November r9r8, F.O. 848/r.
39 See memo. by the Coptic notable Gallini Fahmi, no. 8e, in F.O.
8a8/8.
4o Abd al-Aziz Fahmi, Hadhihi hayati (This is my life), ry63, pp. 7z-3.
Zaghlul himself confirmed Rushdi's and Aldi's encouragement in an
interview of tgz6 with Ahmad Shafiq; see his A'mali ba'd mud,hah'
hiroli (My activities after [the publication oI] my memoirs), Cairo
r94r, pp. z5r-2. Ahmad Shafiq also states (loc. ail.l that according
to LutIi al-Sayyid, Zag};.luJ was terrifred of the possibility of being
executed by the British under martial law, and asked for a society
to be formed which would defend them if they were arrested, See
also al-Manar, vol. xx (tgzt), pP. 49q5oo'
4r Note by Husain Rushdi Pasha, 13 December r9r8, W.P.
4z Muhammad Husain Haikal, Muilhahkirat (Memoirs), vol. r, Cairo
r95r, p. 82.
43 Letter from Sir R. Graham to Wingate, January ryrg, F.O. 84812;
also telegrams from Wingate 25 November r9r8 and from Balfour
to Wingate z December., F.O. 4o7/r83, nos. r44 and 146.
44 He and his immediate subordinates in the residency possibly had a
shrewd suspicion of the purpose of the visit, see note by Captain
Alexander, Wingate's aide-de-carnp, z5 March r9r9, F.O' 848/2.
45 Residency, Cairo, to Foreign Office, telegram, rr January r9r9,
w.P.
46 Wingate to Balfour, 5 December r9r8; Wingate to Gtaham, zz
December; note of meeting with sultan, r January r9r9, W.P. L
typical interview with Fu'ad is recorded by Wingate in a note of
13 December. 'Again and again', wrote Wingate, 'he affirmed with
much heat that it was contrary to liberal British ideas to stifle this
legitimate struggle for freedom and I became more and more con-
vinced that he must have lent considerable support to the views of
the Extremists.
I was confirmed in this impression by the fact that when I used the
word "extremist" in speaking of the pretensions of Zaghlul and his
party, His Highness affirmed that they represented the truly patriotic
Egyptian spirit.' Fu'ad, Wingate also wrote, 'continued to insist on
the birth of real patriotismthroughoutthelengthandbreadth of the
land and the necessity of satisfying these national aspirations.' IV.P.
47 This is what 'Aqqad states, Sa'd Zaghlul, P. 2o5.
409
 NOTES

48 Egyfit Since Cromer, vol. I, p. z8r. A letter of 3r January r9r7

in the Slozzs Papers which seems by Storrs himself contains some
very derogatory remarks about Haines, box II/4.
49 Haines to Wingate, 25 November r9r8, W.P.
5o vol. I, p.86
5r Ahmad Shafiq, Hauliyyat Misr al-siyasiyya, Tamhid (Annual
Survey of Egyptiau Politics, Introduction), 19z6, vol. r, p. r77.
5z Residency, Cairo, to Foreign Office, telegram of 5 December r9r8,
W.P,
53 Brunyate to Wingate, 15 December rgr8, W.P.
54 'Note on Unrest in Egypt', by Sir Ronald Graham, 9 April r9r9,
F.O. 4o71r84, no. l5zr.
55 The instances are found in Tawwaf (pseud.), ECy?t, rgrg, tg21,
who records incidents in Bani Suef and Aswan; in Ahmad Shafiq,
Hauliyyat, Tamhid, vol. r, p. 5o8, who records the arrest of the vice-
governor of Minia Province, its director of the Parquet and judge,
who were accused of rebellion against the government; and in a note
sent by a notable of Bani Mazar to Milner while he was in Egypt with
his mission, which records with circumstantial detail the incitement
of a government official, who encouraged the people to attack British
troops. CL. Milner Paperc, New College, Oxford.
56 Wingate's telegram of r7 November r9r8, F.O. 4o7/t83, no. r42.
57 Wingate's telegram of 16 January r9I9, F.O. 4o7/t84, no. 23.
58 Documenk Collectcd for . . . the Special Mission. . ., vol. z, pp. 68-7o,
F.O. 848/r.
59 Gertrude Bell's Egypt Diary, entry for 3o Septcmber r9r9, Gethude
Bell Papers, University of Newcastle.
6o F,O. qo7lt94, no. 55,
6r Quoted in Ahmad Baha' al-Din, Ayyatn loha tarihh (Historic Days),
Cairo 1954 (1959 edn.), p. rr3. French text of the letter enclosed
with Cheetham's dispatch of 15 March r9r9, F.O. 4o71184, no. 24.
6z F.O. 4o71r84, nos 64, 65 and 69; telegrams from Cheetham, 6 March
r9r9, from F.O., Z March, and from Cheetham, 9 March respectively.
63 DocumedsCollecteilfor...theSpeciol Mission. . ., vol. z,pp, rr54,
rr9, F.O. 848/t.
64 Documcnts Collecteil .for . . .the Special Mission. . ., vol. t, p. 242,
F.O. 848/r. In a letter to Milner of z9 December r9r9, Wingate
admitted that the recruitment of volunteers and the requisition of
supplies 'must invariably partake of the nature of exactions'.
F.O. 848/2.
65 See the numerous memoranda on the grievances of the fellaheen in
the papers of the Milner Mission, particularly a memorandum by
Rennell Rodd (a member of the mission) summarising evidence on

4ro
 NOTES
these grievances submitted to the mission, in F.O. 848/8. See also
, the memoranda and letters sent by Somers Clarke in F.O. 848/4
and F.O. 848lrr. Clarke's views were also published in a pamphlet,
The Unrest in Egypt, Cairo r9zo, which is one of the best descriptions
of the impact of the war on the Egyptian peasant.
66 Economic Effect of the Wu in Egypt - Reaiew of Finoncial Effect,
Memorandum by L. G. Roussin, May r9r9.
67 F.O. 848/6. See also in F.O. 8a8/8, a memorandum entitled 'Sug-
gestions for a note on social relations in Egypt'. The title is sufficient
indication of the drop in the standards of British administration
which the war brought about. In }ris Rcminiscences (tgz3l the
archaeologist A. H, Sayce also remarks (p. +SS), on the bad im-
pression which the proletarian manners of the conscript armies
made on the Egyptians.
68 F.O. 4o71t84, no. 87.
69 F.O. 4o71184, no. 82.
7o F.O. 4o71184, no. 83.
7r F.O. 4o71184, no. 87 quoted above.
22 Telegram from Gary, Cairo, r8 March r9r9, 883.oo/97.
73 F.O. 4o71t84, no. 84.
74 F.O. 37tl37r4, flle 41615.
25 F.O. 6o8lzr3, file 66zlr18, minute dated r7 March.
76 F.O. 6o8lzt3, file 66zlt18, minute of r7 March.
ZZ F.O. 6o8lz13, file 66zlr18.
78 Bafour Papers, British Museum Add. Ms, 49734, telegram of
18 March.
79 Curzor's strictures are quoted in Leonard Mosley, The Glorious
Fault:
the Life oJ Lord Cutzon, 196o, pp. 23G7.
8o F.O. 848/2.
8r F.O. 3Zrb7r4,file 42439.
8z F.O. 4o71t84, nos 9z and ro3,
83 F.O. 37r147r4, f.le 447rt.
84 F.O. 848/3, memorandum by Sir W. Brunyate, r March r9zo.
A letter from Storrs meant for the Foreign Office, dated 8 August
r9r4, warns in very strong terms against Edward Cecil taking
charge of Egypt, since he is on notoriously bad terms and unpopular
with both Egyptians and Englishmen. A secret addendum to the
letter, meant possibly for his parents attributes the scheme to an
intrigue of Kitchener's and the Salisbury family; Storrs Papers,
box II/3.
85 F.O. 37rfi2o4, file 186o9o.
86 Private letter from Stewart Symes, rz March r9rg, W.P.
87 F.O. 8oolzr5, Balfour Papers.
88 F.O. 3Zrl3Zr4, file 429o5.

4II
 NOTES
89 Lord Hardinge of Penshurst, Old Diplomaey, 1947, PP, 233-4.
9o F.O. 6o8lz4, frle 66zlr18, telegram no. 54o of zo March r9r9.
9r F.O. 37tb7r4, file 44t75, telegram to S+z of zo March r9r9.
gz F.O.8+812.
93 F.O. 8oofzr7, Balfour Papers.
g+ 'G.H.Q's Historical Summary of Events during Unrest in March,
April and May r9r9', pp. 5rff., F.O. 848/ro.
95 Clayton to Wingate, zr April rgrg, W.P,
96 So he told Miss Bell when she visited Egypt in September r9r9;
see her 'Egypt Diary', Gertrude Bell PaPws, entry of 3o September.
97 F.O.4o71t84,no.87.
98 F.O. 4o7lr84,no. zo6.
99 F.O. 4o71184, no. 339.
roo F.O. 4o71184, no. r23.
ror F.O. 8oofzr6, Balfour Papers,
roz Hardinge, Olil Diplonacy, loc. cit,
ro3 F.O. 4o71184, no. r3r.
ro4 F.O. 4o71r84, no. r34, note by Wingate, 3 April r9r9.
ro5 F.O. 8oolz16, Balfour Papers, Curzon to Balfour, 3 April r9r9.
ro6 F.O. 8oolz16, copy of Bonar Law's letter to Lloyd George, g April
I9I9.
ro7 F.O. 4o71t84, no. r44.
ro8 F.O. 6o8lz4, tie 6fizltl8, minute by Sir Henry Wilson, 7 April rglg.
ro9 F.O. 4o71r84, no. r48, Curzon's telegram to Allenby, 5 April; and
no. r5o, Allenby's telegram, 6 April.
rro F.O. 37r13714, file 53358.
rrr F.O. 848/ror.
trz Documents Collecteilfor . . . the Spcaial Mission . . ., vol. 2, P. zgoi
F.O. 8a8/r.
r r3 F.O. 6o8lzr3, file 66zlr 18,
rr4 Ahmad Shafiq, Annual Survey . . . Introduction, vol. r, Pp. 326-7'
rr5 Ahmad Mahir acted as the link between the Supreme Council and
Abd al-Rahman Fahmi. Details of. lbe Wafd's terrorist apparatus
are found in Muhammad Anis, Dircsat fi watha'iq thou"ot rgrg
(Studies in the Documents of the r9r9 Revolution), vol. r, Cairo
1963, which publishes the secret correspondence htween Zaghlul
in Paris and Abd al-Rahman Fahmi in Cairo, also in a series of
articles by Mustafa Amin (Madame Zaghlul's nephew) it Al-Ahhbar,
Cairo, July-September 1963, which quote from unpublished memoirs
and documents. See in particular the issues for zo and zz August
and 4 and 9 September 1963 concerning Nuqrashi's and Ahmad
Mahir's complicity in organising attempts on the lives of ministers.
116 Allenby's telegram of zo April r9r9. On it, Vansittart shrewdly
minuted: 'The extent of his [Zaghlul's] "representativeness" is
4t2
 NOTES
considerable at present, but we should not seal it.' F.O. 6o8lz13,
file 66zlt18.
rr7 F.O. 4o71187, no. 33.
r18 G.H.Q.'s'Historical Summary, F.O. 848/ro, p, r85.
ttg Bauour Papers, British Museum, Add. Ms. 49750. L letter from
Curzon to Balfour of z8 April (F.O. 8oo/2r6, Balfour Papers) speaks
of Milner's reluctance to go out to Egypt if his mission was to be
treated 'as a further step in Allenby's hitherto most ill-fated policy
of concession'. 'I should add', Curzon continued, 'that the various
ofhcers and officials who are fresh home from Egypt and of whom
several have been to the Foreign Office are united in deploring the
policy which has been pursued since Allenby's arrival and which
has apparently been adopted without the approval of Cheetham and
our other leading men.' The reference to Cheetham is quite piquant.
rzo See his declaration to Le Temps, Paris, zr July r9r9, and an editorial
in The Egyptian Gazette, Cairo, zo October r9r9, stating that the
prime minister had declared the previous week that he was opposed
to the coming of the Milner Mission which 'would be received, with
the open hostility of the great mass of the population', and if the
mission were sent he would have no alternative but to resign.
rzr F.O. 4o71185, rro. 29, telegram from Allenby 17 November r9r9.
rzz F.O. 4o71t85, no. roo,
r23 See particularly Anis, Studies, pp. 42-4 and r8r. See also J. A.
Spender, Life, Journalism and Politics, t927, vol z, pp, 93-5, for his
experiences in Egypt as a memhr of the Milner Mission.
rz4 Documents Collecteil fot . . . the Speciol Mission . . ., vol. 3, P. rr2,
F.O. 848/r.
rz5 l*lter from Milner to Curzon ro December r9r9, F.O. 848/rr, See
also a memo. by Milner of 22 December (F.O. 848/8) in which he
envisages a settlement which would maintain the army of occuPa-
tion, British control over the Sudan, and over certain parts in the
Egyptian administration.
rz6 F.O. 848/5. Milner's conversation with Fischer took place on 3r
January.
rz7 .., vol. z, p. 9r.
Spender, LiJe ,
rz8 Milner, Englard in Egyft (r3th ed.), r9zo, pp. iv-v.
tzg H. L. Debs, 5s, 4 Novembet tg2o, col. zr3.
r3o F.O. 848/8, 'Some General Observations by Mr J. A. Spender'.
r3r F.O, 8a8/8. A memo. by Spender, undated (also in F.O. 8a8/8),
makes the same points.
r3z F.O. 848/6. Evidence before sub-committee A, rr February r9zo,
p. 7. On the intimidatiot of 'omdas by the Zaghlulists see further
F.O. 8a8/5, memoranda of conversations between notables from
Asiut and Girga, and Spender, Rodd and Lloyd (the secretary of the
mission).
413
 NOTES
r33 The text of the General Conclusions of the Milner Mission is found,
conveniently bound together with the Report of the mission (issued
in rgzr) in F.O. 3Zrl49Z8, frle 516816116.
r34 F.O. 848/5, Milner's diary.
r35 F.O. 848/rr.
136 J. A. Spendu Paperc, British Museum, Add. Ms. 468%.
r37 Anis, Studies, pp. 88, r87, rg4 and zr8; Aqqad, Sa'd Zaghlul, pp.
293-4 ard 299,
r38 F.O. 848/5. See also Haikal, Memoirs, vol. r, p. roo.
t39 F.O. 848lzo.
r4o F.O. 848lzo.
r4r F.O. 37114984,f'le 3939196116.
r4z F.O. 848lzo, letter to Walrond, ro May r9zo.
r43 F.O. 848lzo.
t44 F.O. 848lzo, Walrond to Milner, ro May r9zo.
r45 F.O. 848lzo, Milner's telegram oI rr May r9zo.
146 F.O. 848127, memo by Hurst, 13 May r9zo.
r47 F.O.848lzo, Walrond to Milner, 13 and 14 May r9zo.
r48 F.O. 848127, memo by Hurst, r5 May r9zo.
r49 F.O. 848lzo, Walrond to Milner, Paris, 19 May r9zo.
r5o F.O. 37t1498o, frle tz578l6lr6. When the so-called Zaghlul-Milner
Agreement was revealed in the press in August r9zo, Duff Cooper,
who was then in the Egyptian Department of the Foreign Office,
noted in his diary: 'I wonder that Milner did not get some measure
of cabinet concurrence before going so far'; Olil Men Forget, 1953,
P. ro2,
r5r F.O. 3Tr 149?9, file 97$16116.
r5z F.O. 37114988, file rz96t193116, Scott's telegram of 13 October r9zo.
t53 F.O. 37t1498r, frle t46ol6lt6, telegram to Allenby z4 November
I92O.
r54 F.O. 3Zrl49Z8, file 517816116, telegram to Allenby zr May rgzo.
r55 The whole story may be followed in F.O. 3Zrl498S, files 7z69193116,
I 4fi l% I fi , 84zr lq | $ and 8482 le3 | 16.
156 F.O. 3Zrl4987,files rz44o193/16 and lz4471%1t6.
r57 F.O. 37114988, file rz618193116.
r58 F.O. 37t13988, file 1318o/93/16.
r59 Anis, Studies, reproduces (pp. zzr-z\ a letter lrom Russell, com-
mandant of the Cairo City Police, dated ro Ju,ly rgzz, in which he
complains of the great freedom given to Abd al-Rahman Fahmi in
prison; he is 'living in hospital like a duke, with uncontrolled visits
and uncensored post'. He can discover no written orders prescribing
such treatment and presumes that the orders were verbal. He points
out the futility of imprisonment under such conditions, and refuses to
take responsibility for controlling political crime in Cairo if a con-
414
 NOTES
victed criminal like Abd al-Rahman Fahmi 'is free to plot what
crimes he likes from inside the protecting walls of the prison'.
16o F.O. 37t14988, flle 13roo/93/16.
16r F.O. 37r 14989, file 1474196116.
16z F.O. 848ltr.
163 F.O. 848lzo.
164 These are the words of a minute by Hurst of 8 October r9r8, F.O.
37 r I 498o, file rz 578 16 | 16.
165 F.O. 848/5, Milner's diary, p. 27,2t December r9r9.
166 F.O. 848lzo. Minutes of meetings between Milner Mission and
Egyptian Delegation of zr and 22 l:une, and 5 July r9zo.
t67 Egypt no. r (r9zr) cmd. rr3r, Blitish Pailiame*tary Papcrs, vol,
xlii, tgzt, p. zr.
168 lbid,., p. 23.
t6g lbid,., p. 24.
r7o A draft telegranr of 19 August to Cairo, approved by Milner, declared
that all the men proceeding to Egypt could do was 'to create a
public opinion favourable to the proposed arrangement', and it went
on to say that 'if they act up to their professions, which the mission
believes to be sincere, they will conduct their campaign with that
end in view'. F.O. lZrl+g29, file roz3716l16.
r7r Text of Zaghlul's letter of ez August rgzo in Ahmad Shafiq, Survey
. . . Introduction, vol. t,pp.?46-7. The delegates whom Zaghlul sent
to Egypt were H.af,z'A6fi, Wisa Wasif and Mustafa al-Nahhas.
r7z F.O. 32r14979, file rro54l6lt6.
r73 F.O. 37r14987, flle rzl4o193116. Reports on the situation in Egypt
compiled by the Department of Public Security for the period 7-zr
September r9zo.
r74 F.O. 37r1,,.o79, file tt466l6lr6.
r75 Abd al:Aziz Fahmi, Life,p. u7.
t76 lbid,., pp. ro5fi.
r77 F.O. 37r1498o, flJ.e rz53o16116.
r78 F.O, 848lzo, minutes of meeting between the Milner Mission and the
Egyptian Delegation, z5 October r9zo.
r79 F.O. 37r1498o, file rt54zl6lr6.
r8o F.O, 37tl4g7g, file ro456l6lt6, Scott's telegram of z5 August r9eo,
r8r Allenby was telegraphing to Curzon on z July rgzo: 'On one point
sultan laid particular emphasis. He hopes that with a view to his
own prestige in the country he may be given credit, personally, for
some of the concessioas to be made by H.M.G. to Egypt.' F.O. 37rl
4979, file 7628161t6. And in his telegram of z5 August just mentioned
Scott reported that the Egyptian prime minister had asked 'that
H.M.G. should reserve some concession to sultan as suitable recogni-
4r5
 NOTES
tion of his loyalty, and to repair damage to his prestige done by
Zaghlul's success'.
r8z F.O. 37116z9z, files 6o3, 727, 858lz6o116, Allenby's telegrams of
rz, 15 and r7 January rgzr; F.O. 37r16z95,file 4919lz6o116, Curzon's
cabinet memo. of zr February; F.O. 37116z9z, frle z463lz6o116r,
cabinet conclusion, 22 February, and file zo83lz6o116, Curzon's
telegram to Allenby of same date.
r83 F.O. 3711498r, minute of 23 November r9zo.
r84 F.O. 37rl4g8r, frle r443o16l16.
r85 F.O. 37t16z93, flle 2849lz6o116, Lindsay's minute of 4 March and
telegram to Allenby of 8 March.
r 86 F.O. 37 r 16z94, frle 38 g I z6o lr 6, Allenby's dispatch of 18 March r9z r.
r87 F.O. 37116294, file 3549126o/16, Allenby's telegram of zr March
r9zr, and file 4z37lz6o116, Allenby's telegram of 8 April.
r88 F.O. 37116295, Allenby's telegram of 3o April r9zr, giving Boyle's
account of a visit to Zaghlul.
r89 Egypt no. 3 (r9zr), Cmd. 1527, British Parliamentary Paperc, vol.
xlii, r9zr.
r9o lbid., pp.239-40.
r9r Egypt no. r (r9o7, Cmd. 3394, British Pailiamentary Papers, vol.
C, rgo7, pp. 5-6.
r9z F.O. 37r 16297, file 7o39lz6o116, Walrond's telegram of 14 June r92r.
r93 F.O. 37116295, file 4736126o/16, Allenby's telegram, urgent, 2r
April r9zr.
r94 F.O. 37t16z95,file 5,35zlz6o116.
r95 F.O. 37r163ro,file 1677lz6o/16, minute of r7 October rg2r,
196 F.O. 37tlgo7, flle rz6rrlztulr6, reply of the Egyptian Delegation,
15 November r92r.
r97 F.O. 37r 163o7, file rz696lz6o/16, Allenby's telegram of 18 November
t92t.
r98 F.O. 371163ro, frle 14377lz6o116, minute by Lindsay, 7 November
rg2r,
r99 F.O. 37t lgoT , file rz84zlz6o116, Curzon's telegram of 19 November
t92t.
zoo F.O.37r163o6, file trgoglz6olr6, minute by Lindsay, z5 October r9zr.
zor F.O. 37r1498o, frle rz57816116, minute of 4 October r9zo.
zoz F.O. 371163ro, flJe 14377lz6olt6.
zo3 F.O. 37r163o5, file uzz5lz6olr6.
zo4 F.O. 37r163o5, file trzz5lz6oll loc. cit.
zo5 F.O. 37r16298,fite pzolz6olt6.
zo6 F.O. 84816, Hayter's evidence of 5 February r9zo.
zo7 F.Q. 4o71t85, Allenby's telegram of zz lune rgtg.
zo8 F.O. 3Zr l372g, fle r3gz8z, Allenby to Curzon, London z5 September
I9I9.
4I6
 NOTES
2o9 U.S. National Archives, records of the Dept. of State, 883.oo/
r84, telegram from Gotlieb, Cairo, zo July r9r9.
zro H. E. Bowman, Midille Eost Windou, t942'PP. 243-4.
ztt EgyptimGarutb, Cairo, z4 November 1927.
ztz F.O. 3?t163o7, f:.Jte rco4zlz6o/r6, minute by Lindsay, 5 September
r92r,
zr3 Firnrin van den Bosch, Vingt onndcs d'Egyplc, t932, PP.44-5. After
his retirement, Sir Sheldon Amos stood (unsuccessfully) as a Liberal
for Cambridge; see Bertrand Russell, Autobiogruphy, vol. I, 1967,
P.I4I.
zr4 F.O. 3?r 163o12, frle 8857 lz6o116.
zr5 Miss Bell's letter, C,airo zg September r9r9 in Elizabeth Burgoyne,
Gcrtntilc Bell . , . t9t4-t926, 196r, pp. rrz-3'
z16 F.O. 37tl$o6, flIe 115o3/z6o/16, memo. by Clayton, 8 October r9zr,
and F.O. 8oo/r53, Curzon Papers, memo' by Clayton, zr October
r92t,
zr7 F.O. 37t163o6, frle rtz6rlz6olr6.
zr8 F.O. 37116z98, fite 7zolz6o116, Allenby's dispatch of 17 June r9zr.
zr9 F.O. 37tl$o6, file rrTo5lz6r:/16; Allenby's note of zz Octobet r9zr,
zzo F.O, 371163o6, file r19o8/z6o/16, minutes of the first meeting of the
cabinet sub-committee on the situation in Egypt, z4 Octobet r9zr,
no. C.P. 3458.
zzt F.O. gTrl$o7, f:JLe 1488lz6o/16, cabinet conclusions, 4 November
t92r.
zzz F.O. 371163o7, file tz465lz6olt6.
z4 F,O. 37rl$o7, file rz696lz6o/16, telegram of r8 November r9zr,
previously cited.
zz4 F.O. 371163o7, fles 12656-rz666lz6olt6.
zz5 F.O. 371163o8, files 13374 and 446rlz6olt6.
zz6 F.O. 37rl$o8, fle r3587lztulr6.
zz7 F.O, 37rl$o8, files 13654 and 13687lz6rc/16.
zz8 F.O. 37rl$o8, file 4997lz6o116.
zzg F.O. 371163o8, f'le r4ot6lz6olr6.
z3o F.O. 37t163o8, f.le 14o75lz6o116.
z3r F.O. 3?rlqog, f.le r4t8zlz6olt6.
z3z Zaglrilul's removal was being canvassed by Selby some two months
earlier in his letter to Tyrrell, quoted above.
233 In his memoirs, Isma'il Sidqi claims to have himself suggested the
main lines of Allenby's proposals, and reproduces a first draft in
French in his own handwriting. See his Mudhahhbatd (Memoirs),
r95o, pp. z5{.
234 F.O. 3?rhno,frle 467lr116.
235 F.O. 37r1773r, frle t48zlrlt6, Allenby's disPatch of z February rgzz'
236 F.O. 3Trhno,file 467lr116.
4r7
 NOTES
4Z F.O. 37ll?rco, frle 65zltlt6, cabinet memorandum no. C.P. 3616.
238 F'.O. 8oo/r53, Curzon Papers, Curzon to Allenby rB lanuary rgzz,
239 lbi.d.
z4o F.O. 3Irl773o, frle g7olrl16, draft cabinet conclusions, r8 January
rgzz; an,d frle 65z11116, Curzon's telegram to Allenby of same date.
z4r F.O. 3Zrh?3o, frle 767lrl16, and F.O. 8oo/r53, Curzon papers.
z4z F.O, 37rl773o, f.le 97r/1116, cabinet conclusions, z3 Jawary rgzz.
243 F.O. 37rl7no, flle 767lr116. This telegram was accompanied by a
personal one from Curzon (the draft of which is in the same file) in
which he informed Allenby that he had argued his case 'with all
my energy and power', but that the cabinet would go no further.
244 F.O. 3Zrl773o, f.le gzr/r/16.
245 F.O. 37rlZZ3o, f,le ro3tlr/t6, Amos to Murray z6 lanuary rgzz.
246 F.O. 3?LlZZ3o, frle ro4o11116, conclusions of cabinet, z6 January
rgzz; and, F.O. 37t177t, frle rrzrlr/16, conclusions ot cabinet,
2? larLvary.
247 A proof of this White Paper, which remained unpublished, is in
F.O. 37r1773r, file 138o/r/16.
248 F.O. 37r1773o, frle ro4olr116.
249 Minutes of the two meetings of 15 February in F.O. 37r1773t files
1964 and ry65lr116.
z5o F.O. 37rh73z,file zzo5lt116, cabinet conclusions, 16 February r9zz,
z5r Allenby's scheme was set out in his telegram no. 19 of rz January
rgzz in F.O. 37r/778o, file 4681r/16. It is reproduced in Cmd. r59z
(r9zz) cited above, p. zz.
z5z F.O. 37116z9z, file 877lz6o116, Allenby's telegram of 18 January
r92t,
253 F,O, 37tl62gz,frle 465lz6o116, Scott's telegram of. zg lanuary r9zr,
254 F.O. 3?t18962, flle 4888/ro/16, dispatch of 5 May 1923.
255 Aqqad, Sa'd Zaghlul, pp. 42t-2.
256 F.O. 37r18968, file 8594185/t6, report from S.I.S., z3 August 1923.
257 Mustafa Amin in al-Ahhbar, Cairo, 16 September 1963, quoting the
unpublished memoirs of Zaghlul's confidential secretary, Muham-
mad al-Ansari.
258 Haikal, Memoirs, vol. r, p. r7r. The Liberal Constitutionalists ac-
cused Zaki al-Ibrashi who'was then assistant under-secretary of
s.ate at the ministry of the interior of having worked the elections
against them. Ibrashi as is well-known, w:ls a palace man. See his
short biography in 'List of Leading Personalities in Egypt' in F.O.
4o7/2t7, no. 12.
259 This was the language held by his confidant Robert Rolo; F.O.
3711899, memo by E. M. B. Ingram reporting a conversation with
him, z8 December 1923.
z6o In his Report for 19o6, Cmd. 3394 Ggoil, p. Z.
4r8
 NOTES
z6r Lloyd, Egypt since Crcmet, vol. z, ch. 6.
z6z Sir Charles Petrie, Austzn Chambeilain, vol. z, p. 337.

6 The Genesis of the Egyptian Constitution ot rg23

r Sir David Kelly, The Ruling Few, rg5z, p. zz6.
z U.S. National Archives, Dept of State records, 74r.831ro, undated
dispatch no, 43 from Alexandria (received ro October r9z8).
3 Brian Gardner, Allenby, 1965, p. 16.
4 C, F. Adam, LiJe of Lod Lloyd, 1948, p. rg7, quoting a letter from
Lloyd to a friend, written in rgz7.
5 Dispatch from Allenby to Curzon, zo January 1922, see Ch. 5, above.
6 Allenby to Curzon, re January tgzz, E.O. 37rl7no, file 46711116,
quoted p. r53 above.
7 Adam, Life of Lotd Lloyd, p. rs7.
8 Quoted in Ahmad Biyali, Ailli Pasha, Cairo r9zz, p. 256.
9 Document reproduced in Muhammad Khalil Subhi, Iardhi al-ha1,a1
al-niyabiyya fi Misr (Parliamentary History oi Egypt), vol. V, Cairo
r939, P. 459.
ro The list of members is printed in Subhi, Parliamentary History,
vol. V, pp. 493-4; Muhammad Husain Haikal was a member ol the
secretariat and his Memoirs give valuable glimpses of the working of
the commission;see his Memoirs, vol. I, chapter 3.
rr 883.oo/436, telegram from Cairo, z actober tgzz.
rz The debates o{ the commission and of a sub-committee of eighteen
members drawn from the full commission in order to consider first
principles have been published: Maha.ilit al-lajna alramma li-
uad' al-duslur (Minutes of the General Constitutional Commission),
arrd Mahad,ir lajnat wd' al-nobodi' al-'omma li'l-dustur (Minutes of
the Commission Set Up to Lay Down the General Principles of the
Constitution), Cairo rgz41' they have been substantially reproduced
in a valuable commentary on the constitution, Muhammad al-Sharif,
'Ala hamish al-duslur (On the Margin oI the Constitution), Cairo
1938, 2 vols. in which the debates have been rearranged to follow
the order of the articles as they appear in the constitution of 1923.
13 Haikal, Memoirs, p. r34.
14 lbi.il., p. r37.
15 The draft constitution is printed in Subhi, Parliamentary History,
pp. 495ff.
16 Printed in ibid, pp. +66+2,.
17 In his Repoil for 19o6, Cmd. 3394 Fgoll, p. l.
r8 A. P. Wavell, AllenW, Soldicr ontl Slatesman, 1946, p. 316; Subhi,
Parliamentary History, p. 498.
19 Memoirs, pp. 155-6.

4r9
 NOTES
20 Wavell, Allenby, Soldiet and Stotesma.n, P. 3o9.
zr Haikal, Memoirs, pp. r4t-2.
zz 883.oo1436, previously cited.
4 8$.oo168, dispatch from U,S. minister, Cairo, r December r9zz.
z4 Wavell, A llenby, S oliliet anil Statesmon, p. 3r8. For the events leading
to Tharwat's resignation see Haikal, Memoirs, Pp. 155-6 an.d al'
Kashhul,8 January 19z6, p.4; also dispatch from U'S. minister,
r December, 883.oo/438.
z5 Wavell, Allenby, Soldier and Slalcsmarr, P. 32o.
z6 So the U.S. minister reported in a dispatch from Cairo, of zr October
rgzg;74r.83rr153.
z7 Wavell, Allenby, Soldiq ard Statesman, P. 32o.Subhi, Parliamentary
History, vol. IV, t947, pp,53-4 purports to give the gist of a note
dated z February 1923 from Allenby to the king objecting to the
mention of the Sudan in the constitution and threatening that if
British wishes were not met within twenty-four bours, the Declara-
tion of z8 February rgzz would be revoked,
z8 Albert Shuqayr, al-Dustur al-misri wa'l-hihm al-niyobi fi Misr (T}re
Egyptian constitution and representative government in EgyPt),
Cafto 1924, reproduces, pp. 67-88, an article in al-Muqattam, of'
z3 March r9z3 giving details of the amendments suggested by
Tawfiq Nasim before his resignation. See also, Biyali, Ailli Pasha,
p. 316; Ahmad Shafiq, Survey . . ., Introduction, vol. 3,C,airo 192,6,
pp. 468ff.
zg 883.oo146o, dispatch from U.S. minister, C-airo, zz February 1923.
3o Text of letter dated z7 December t922, iD Ahmad Shafiq, ibdd.,
pp. 378-8o.
3r Nash'at, as is well known, was mentioned in the assassination trials
which followed Sir Lee Stack's murder as having had a connection in
rg2z-3 with the Wafd,'s apparatus; see the deposition before the
juge d'inslruction of Sulaiman Fawzi, editor of al-Kashhttl (who
knew Nash'at) printed in this periodical in its issue of rz February
19z6; see also a most interesting article on Nash'at in al-Kashhul,
r8 December, tg21, where it is stated that during the period when
'Adli was considering the formation of a cabinet, the authorities
seized the manuscripts of Wafdist manifestos translated into Arabic
by the (publicist)Manfaluti, who had been dismissed from his govern-
ment post by the Tharwat administration and been employed
subsequently by Nash'at in the palace; these translations were
further stated to have been corrected by Nash'at, andto havebeen
originally drafted in French by another Palace official, (Achille)
Sayqali (Sekaly).
3z Wavell, Allenby, Soliliu onil' Slatesman, P. 321,
420
 NOTES

33 Text in Ahmad Shafiq, Survey, p. 5r8.

34 Subhi, Parliamentary History, p. 542
35 Text in Subhi, Parliamentary Flistory, pp. 517-43.
36 Article 43, compared with Article 4r of the draft.
37 Article 46, compared with Article 4z of the draft.
38 Article 49, compared with Article 45 of the draft.
39 Articles 74 and,8o, compared with Articles 7r atd, 75.
4o Article r53, without a counterpart in the draft.
4r Article 156, compared with Article 146 o{ the draft.
4z Abd al-Lziz Fahmi, Life, p. r43.
43 Text of the Law of 3o April 1923, in Subhi, Parliamentary History,
pp.6zrfr,
44 Haikal, Memoirs, vol. I p. r7r. See p. 4r8, fn.258 above.
45 Conversation towards the end oI r9z4 with the managing director
of the Suez Canal Co., Austen Chambcrlain Papers.
46 Directed successively by'Abd al-Rahman Fahmi and Shafiq Mansur,
two prominent Wafdists.

7 E;gWt and the Caliphate, tgrs-12

r There is a short and scrappy biography by Anwar al-Jundi, al-Imam
al-Maraghi, no. r15 in t}:e lqro'series, 1952.
z Shaikh al-Zawahiri, Maraghi's rival and successor it r9zg, states in
his Memoirs that Maraghi's appointment in r9z8 was against the
king's wishes. But this does not necessarily mean that Fu'ad objected
to Maraghi personally; more likely, he disliked giving an appoint-
ment to his minister's nominee. See Fakhr al-Din al-Ahmadi al-
Zawahii, ol-Siyasa ua'l-Azhar (Politics and al-Azhar), Cairo 1945,
p. 55.
3 Haim, 'State and University in Egypt', in C. D. Harris and
See S. G.
M. Horkheimer (eds.), Utiaetsikit unil Mod,ernc Gesellschaft, rg5g.
4 Odente Mofuttto, vol. XVI, 1936, p. 475, quoting al-Ahtam of 5 May
1936. The lessons were for three hours a week.
5 al-Jundi, pp. 116, 164.
6 W.P., frle 4417, contains a translation made in Wingate's office,
for the text of which see appendix. I have not been able to trace the
Arabic original. The letter is undated, but seems to have been
written at the end of April or the beginning of May r9r5. al-Jundi,
p. tr2, erroneously calls the letter a fatwa.
7 See, for instance, the exposition ol the classical view by Muhammad
Rashid Rida, printed in al-Manar, vol. XXIII, rgz2, pp. 229-.52,
and translated in H. Laoust, Le CaliJat dans la ilocttine d,e Rashiil
Riila,1938, pp. 29-42, where the authorities are cited. Rashid Rida
wrote this article to refute the viervs of Maulana Abu'l Kalam Azad

42r
 NOTES
who, iu defence of the Ottoman caliphate, asserted that Quraishite
descent was not necessary; see his treatise on the caliphate published
serially in translatiort in al-Manar, vol, XXIII; his views on
Quraishite descent are printed pp. 753ff. When Rashid Rida replied
to Abu'l Kalam Azad he had fallen out with and was opposed to the
claims of King Husain so that it cannot be said that his argument is
an advocate's brief. On the necessity for a caliph to be a descendant
from Quraish see the authoritative discussion in E. Tyan, Inslilu-
tions ilu droit publia musubnan, vol. l, Le Califal, 1954, pp. 36t-7o.
8 l-etter from Wingate to Cromer, 14 May ryr5, W.P., f;Je 13416.
Maraghi's earlier note in support of the sharif is here said to have
been dated zz April.
9 W.P., file r53/6.
ro W.P., file 153/8.
rr Letter from Fuad al-Khatib to Muhammad Sharif al-Faruqi, 14
Muharram 1335 H./ro November 1916 in translation in W.P,, fiLe
r43Alr.
rz Documenls Collecteil for the Infonnalion of the Special Mission Ap-
pointed to Enquirc into lhe Situation in Egypl, vol. I, p. r55, F.O.
8481r.
13 Dispatch from Allenby, rz April rgzo, F.O. 32114984, file E.359zl
%116.
14 lbid., vol. II, p.54.
15 Dispatch from Cairo, rr March 1924, n.o.867.4o4179.
16 Ahmad Shafiq, Survey, t926, 1929, pp. r49-5o.
17 Translations and reports from the Arabic press in the Egyptian
Gazette ,8 March 1924, enclosed with the dispatch cited above.
18 Survey 1924, 1928, pp. rr8-9.
rg Reaue du Monde Musulman, vol. LXIV 1926, pp, 29133, where the
statement is translated in full.
zo Shakib Arslan, al-Soyyid Rashid, Ritla . . ., Damascus, 1938, p. 367.
zr Majallal al-mu'tamar al-islami al'omm li'l-hhilofa fi Misz (Review of
the General Islamic Congress for the Caliphate in Egypt) no. r,
October t924, pp.3-rz. Rashid Rida's epithets for the fallen Husain
are:'mad,h'uman, tnailhut'an, ma'funan, mathbutan, manbudhan,
mahjuran.' Abd al-Mut'al al-Sa'idi, Al-Mujaddidun fi'l Islam . . .
(Reformers in Islam . . .), Cairo n.d. [after r95z], states, p. 542, that
Rashid Rida responded favourably to Fu'ads ambition to be caliph.
zz Ahmad Shafiq, Survey rgz7, rgz8, p. 6o.
z3 Al-Manar, vol. XXVIII, rgzT-8, pp. 3r9-2o, quoting Fikri Abaza's
speech.
z4 Egyptian Gazetle, r April 1927, translating article in al-Ittihad,news-
PaPer.
z5 Survey, 1924, p. rtg.
422
 NOTES
z6 Ahmad Shafiq, Survey, rgz5, rgz8, pp. r,o53-5 and 917-8.
z7 The phrases are E. W. Lane's, see The Matncts anil Customs of lhe
Moilern Egyplians (Everymans Library ed.), pp. 445-6. See also
article 'Mahmal', in The Encyclopaedia oJ Islam, ar.d Jacques
Jomier, O.P., Le Mahmal,, Cairo r953,
z8 Ahmad Shafiq, Survey, 1924, p. 3oo. The other bone of contention
related to the Egyptian medical mission which it was customary to
send with the pilgrims. Husain forbade them to attend to the sick,
even though they were Egyptian. Himself a man of overweening
ambition, he may have considered such a mission a reflection on
Hijaz facilities and an easy pretext to diminish and humiliate him.
z9 Lane, The Manners and Customs of the Moilern Egyptiars, p. r44.
3o Muhammad Husain Haikal, Memoirs, vol. r, r95r, p,258.
3r ll[ajallat al-rnu'tatttar . . ., tro. r, October 1924, p, 19 and no. z,
November r9zq, p, 48.
3z Haikal, Memoirs, vol. I, pp. 4oz and.23r, says that initially Ibn
Sa'ud rvas favourable to Fu'ad's views, but that when he conquered
the Hijaz, he began increasingly to oppose them.
33 Dispatch from the U.S. ministcr, Bulkeley, zo August r93r, no.
883.ool7rr.
34 Arslan, Al-Sayyid Rashid Rida . . ., p. 352.
35 Reaue d,u Monde Musulman, vol. LXIV, pp. 34-6, for the text of the
statement. The ulama alleged elections in Egypt, disturbances in
the Hijaz, and the necessity to reach closer understanding among
Muslims as reasons for the delay,
36 Al-Manar, vol. XXVI, 1926, pp. rger.
37 Article in al-Mahrus4 newspaper, translated h tJr'e Egyptian Gazette
of 8 March 1924, enclosed with the U.S. minister's dispatch no.
cited above.
867. 4o 4 | 7 9
38 Ahmad Shafiq, Survey 1926, pp. r495o, and Survey 1925, p. ro55.
39 Dispatch from U.S. high commissioner, Admiral Mark Bristol,
Constantinople, z3 January tg21, no. 867.oo/1844. &e also the
shaikh's obituary it al-Manu vol. XXXIII, 1933, where it is also
stated, p. r34, that he had been offered the spiritual caliphate.
4o Ahmad Shafiq, Survey t926, p ro7, quoting a/-Siyyosa ol z February
1926.

4r Translated into French: 'L'Islam et les bases du pouvoir', in Reaue

d,es Ctudes islamiques, vols. VII and VIII, 1933 and 1934, pp. 353-
9r and t63-232.
4z Report in al-Siyvasa newspaper, rz March 1926, quoted in Ahmad
Shafiq, Survey 19z6, pp. 148-9.
43 My Activities . . ., pp. r8r-2. The reference to a republic is interesting.
The tribunal did not deal with this issue, confining itself to purely
theological and academic points, but Shaikh Yusuf al-Dijwi, a
423
 NOTES
member of the Areopagus of the Grand Uloma, who had instigated
the trial, in an attack on the book accused Ali Abd al-Raziq of
desiring to destroy the monarchy and to promote rebellion by telling
the reader that religion does not forbid it while, in fact, it is con-
sidered one of the greatest sins; 'if the government understood the
real purpose of the book', he wrote, 'they would be the first to
combat it'. This is probably the nearest that any of Ali Abd al-
Raziq's opponents came to say or hint publicly that the tract had
some connection with current Egyptian politics; see al-Dijwi's
al-Islam ua usul al,-huhm ua'l-radd alayhi llslam and the Founda-
tions of Authority and its Refutation), Cairo n.d., pp. 59 and rzr-3.
44 Haikal, Memoirs, vol. I, pp. z3z-3 and 165-6.
45 al-Aqqad, Sa'tl, Zaghlul, p. 48o.
46 Raild hay'at hibar al-ulatna ala hitab al-islam wa usut al-huhm li'l-
shaihh Ali Abil al-Roziq (Refutation by the Areopagus of the Grand
Ulama of the Book, Islam and the Foundations of Authority, by
Shaik Ali Abd al-Raziq), n.d. The pamphlet ends with the sentence:
'This is t};'e ratio decidenili of the judgment against Shaikh Ali Abd
al-Raziq issued by the C'eneral Administration of Religious Estab-
lishments'. [Signed: the Party oI] Union. The judgment is analysed
by L. Bercher in Reuue ilcs Elud.es Islamiques, vol. IX, 1935, pp.
75-46.
47 Ahmad Shafq, Survey, 19z6, pp. 4o and ro5fi.; Reuue du Mondc
Musulman, vol, LXIV, g. rz6. The congress at Mecca met from 7
June to 5 July 1926. The Egyptian government ignored entirely the
Mecca congress and did not even deign to reply to the invitation to
attend; see al-Kashhul, 18 June tgz6, p. t2.
48 Ahmad Shafrq, Survey 19z6,p. zo3.
49 Al-Siyyasa wa'l-Azhar, pp. z15-6.
5o Ahmad Shafiq, Survey 19z6,pp. zBer.
5r The minutes of the meetings and resolutions are translated in Reauc
ilu Monilc Musulnon, vol. LXIV, pp.4*rzz,
5z See S. G. Haim, 'Alfieri and al-Kawakibi' and 'Blunt and al-
Kawakibi', it Oilente Mod.erno, vols. XXXIV and XXXV, and
ibid., Arub Nationalism, 196z, pp. z8-29.
53 Rashid Rida to Antonius, ro January tg31; Anlonius Papus,lsranl
State Archives.
54 Dispatch from the U.S, minister, Cairo, z8 December r94r, no.
883.oo General Conditions/7,
55 Dispatch of zo August r93r, no. 883.oo/7rr, cited above.
56 Dispatch from Cairo, zr December r93r, no. 865C oo167.
57 Nur al-Islam, vol. fI, no. 6, Jamada al-akhira, r35oH/October r93r,
p. 464, and no. 8, sha'ban r35oH/December r93r, pp. 59ofi. Rashid
Rida wrote, shortly after the Jerusalem congress, that Shawkat
424
 NOTES
Ali was rumoured to have wanted to use the congress to proclaim
Abd al-Majid the true caliph and that this aroused the strenuous
opposition of Turkey; see al-Manar, vol. XXXII, t932, p. r2o.
On Turkish objections, see Orierte Modctno, vol. XI, t93r, p. S7g.
Shawkat Ali was hostile to Ibn Sa'ud, and this may have encouraged
Fu'ad at one point to seek his support. Shawkat Ali visited Cairo
in August rg3r and saw the king; he was then thought to be working
for him; dispatch from U.S. minister, Cairo, 9 September r93r, no.
883.oo17r4. On Shawkat Ali's hostility to Ibn Sa'ud, see Reuue ilu
Monde Musulma4 vol. LXIV, p. 15, and al-Manar, vol. XXIX,
tg2g, PP. t62fr.
58 Dispatch from Cairo, z9 March t932, no.883.oo General Conditions
Irz.
59 details in Oienta Moilerno, vol. XI, rg3r, pp. 527-8.
See
6o Private information,
6r Oriente Moderno, vol. XII, 1932, p, 25, Aazam was eventually
expelled from Palestine for making an anti-Italian speech; see ibid.,
p. 42. The occasion of the anti-Italian agitation was the recent
execution of the rebel leader Umar al-Mukhtar in Cyrenaica. There
may be a significant connection between Azzam's attack on Italy
and the reports, mentioned above, of Italiran support for Fu'ad in
the caliphate question. In his dispatch of z8 December r93r, no.
833.oo General Conditions/7, cited above, the U.S. minister reported
the appearance of an outspoken article by Azzam entitled 'Sidky
Pasha continues to be friendly to the Italians but offending to the
Moslems and Arabs'.
6z Al-Manar, vol. XXXII, pp. r2o ff. contains an interesting account
of the intrigues and manoeuvtes behind the Jerusalem congress;
him mufti's letter to Sidqi is printed p. t26i see also Oricnte Moil,crno,
vol. XI, r93r, p. 529, for translation of the mufti's letter.
63 Dispatch from Cairo, z5 September 1933, no. 883.oo General Con-
ditions/3o,
64 Dispatch from Cairo, zo October 1933, no. 883.oo General Condi-
tions/3r.
65 Haikal, Memoirs, vol. I, p. 4oz, who writes that he agreed with
Ali Mahir that the caliphate was a burden which Egypt did not
have the strength to shoulder.
66 Article dated 8 May 1936, published in The Egyptian Gareltp of. 20
May, enclosed with dispatch from the U.S. minister, Cairo, 4 May
1936, no. 783.9ollro.
67 Al-Jundi, al-Imam al-Marughi, p. ro9, mentions Maraghi went on a
mission to Ibn Sa'ud 'on matters pertaining to the caliphate',
68 Muhammad al-Tabi'i, Min asrar al,-sasa wa'l-siyyasa (Secrets of
Politicians and Politics), Cairo n.d. fafter r95z], pp. 57-8, 62, and 78.

425
 NOTES
69 Reported by al-Lahab, Jerusalem, 27 February 1938.
7o Reprinted in Saa,l al-Shq'b, Jerusalem, 20 February 1938.
7r See Haikal, Memoirs, vol. II, 1953, chapter z, fassim.
7z Dispatch from Cairo, 17 I\farch 1938, no. 383.r163/46. The newspaper
report was taken from La Boutsc Egyptiennc of 9 March,
73 Report ia The Egyftian Mail, 5 March 1938, translating interview
appearing it al-Balagh, and in La Boursc Egyptiennc of the same
date, enclosed with dispatch no. 383, 1163146, cited above.
74 Dispatch from Cairo, z7 Lpril 1938, no. 883.oo C'eneral Conditions/
73.
75 According to Jewish and Greek traditions respectively, both Moses
and Plato also died on the anuiversary of their birth,
76 Dispatch from Cairo, zr February 1938, no. 383.r163/45, enclosing a
translation of the rector's broadcast taken from ol-Ahtart of tz
February.
77 al-Jundi, ol-Imam al-Maraghi, Pp. ro9-ro. The date of the sermon
is not given, but the author mentions that Maraghi was taken to
task by the prime minister and that he answered by threatening to
arouse the population against him. The prime minister in question
was probably Husain Sirri, whose period in office ran from November
r94o to February r94z; his predecessor Hasan Sabri himself had
favoured a neutral policy for Egypt. A. A. Michie, Retueot to Viclory,
r942,p.r45, tends to confirm that it was during Sirri's ministry that
Maraghi preached his sermon; this author also provides more details
of the sermon than al-Jundi, who is content with a bare mention
of its subject.
78 Haim, 'State and University...', P. too, quotiog the Memoirs of
Maraghi's rival, Shaikh al-Zawahiri.
79 G, Kirk, The Miililh East in lhc Wat, t952, P.257, guoting con'
temporary Egyptian, English and German press rePorts.
8o al-Jundi, al-Imam al-Maraghi, p. rro.
8r The episode is described in Haim, 'State and University. . . , PP.
IOO-r.
See E. Nune, 'L'Idea dell'Unita Araba in Recenti Debattiti della
Stampa del Vicino Oriente', Oiede Moiletno, vol. XVIII, 1938,
pp. 4tr-2, where the author quotes contemPorary Egyptian press
reports.
83 Orientp Mod,etno, vot. XVII, rg37, P. 575, giving details of an inter-
view in al-Ahtam, z6 September 1937.
84 Oriente Moderno, vol. XVIII, 1938, p. zzz,
85 Dispatch from Cairo, z3 December 1938, no. 883.oo C'eneral Condi-
tions/82.
86 E. Rossi, 'Il Congresso Interparlamantare Arabo e Musulmano pro
Palestina al Cairo (7-rr Ottobre\', in Oieile Moileruo, vol' XVIII,
426
 NOTES

1938, p. 589 and Orienb Modeno, vol. XIX, 1939, p. ro4. The
delegates in January included Sa'udi princes and the Yemeni heir
to the throne.
87 Haikal, Memoirs, Vol. II, pp. 156-2. It appears from the context
that Bindari aspired to Ali Mahir's place, and that this was his way
of insinuating himself in Faruq's good graces.
88 Al-Ittihad al-Arabi fi'l-Qahira, al-Kitab al-thani (The Arab Union in
Cairo, Second Book), Cairo r95o, p. ro. The king subsequently sent
Abd al-Rahmarr Azzam on a mission to Ibn Sa'ud. Azzam was a
long-standing advocate of Arab unity, had many connections in the
Arab world, had by then abandoned the Wafd,ists and become a
king's man, and was the son-in-law of Khalid al-Qarqani, an in-
fluential adviser of Ibn Sa'ud.
89 United Stales Weehly Redeu of Oficial Foreign Broad,casts, no. rro,
8 January t944, p.2t.
9o Musa Sabri, Bissal malih wa arba' uizarat (The Story of a King and
Four Ministries), Cairo, 1964, p. t4z.
9r See article 'Sharif in The Encyclopaed,io of Islam.
9z Details of this committee were given by Hafiz Aflfi, at the time chief
of the royal cabinet, in his evidence in Karim Thabit's trial before
tlre revolutionary court in 1953; see Kamal Kira (ed.), Muhahamd.t
al-thawra (Trials of the Revolution), vol. 4, Cairo ry54, p. 672.
See also E. I(edourie, 'Revolutionary Justice in Egypt: The Trials
of 1953', inThe Political Quarteily, 1958, p. 393, also Abd al-Rahman
al-Raf i, Muqaddimdt, thaurat zg yulyu (Preliminaries of the z3 July
Revolution) Cairo t957, pp. 134-5,

8 Pan-Arabism and British Policy

rP. W. Ireland (ed.), The Ncar East: Problcms anil, Prospects, tg42,
P.70.
z Published as Arab l*d,ependence and Unity, 1943. Extracts included
in J. C. Hurewitz, Diplomacy in the Near and Middle East, vol. II,
1956, pp. 236-7.
3 See chapter 7 above, pp. rg8-zo7
4 Haikal, Memoirs, vol. II, p. 3r9.
5 lbid., p.33o.
6 lbid, p. r55.
7 lbid., p. 156. See above, pp. 204-5,
8 In an interview of some two years before Ali Mahir expatiated on the
benefits of regimenting and indoctrinating the young; see Rom
Landau, Search for Tomotrow, 1938, pp. z8-9. See also Abd al-
Rahman Azzam,'al-Tarbiyya al-'askariyya wa atharuha fi'l sha'b'
427
 NOTES
(Military Training and its Effect on the People), al-Hilal, Cairo,
November 1939, pP. 6-9.
g Oriente Moderno, vol. XX, r94o, P' 39, stated, quoting al'Bashit
of Beirut (zz November 1939) that the Egyptian government had
of6cially asked Iraq for a copy of the Futuwwa regulations in order
to adopt them in EgYPtian schools.
ro Oriente Moderno, vol. XIX, 1939, P. 512.
rr J. Heyworth-Dunne, Religious anil Political Trcnds in Modern
EgYpt, t95o, P. 36.
rz Ishaq Musa al-Husaini, al'Ihhwan al-muslimun (The Muslim
Brethren), Beirut 1955, PP. ro8-9.
13 The head of the British military mission to Egypt r938-4o, Lieu-
tenant-General Sir Gordon Macready, has recorded in his memoirs
(In lhe Wahe of the Great, 1965, PP. rr83) that Aziz al-Misri was
telling Egyptian officers at the Staff College in r94o that the Germans
were superior and certain to win the war' Macready reported this to
Wavell and the British ambassador. Aziz was then dismissed at the
request of the British.
14 Haikal, Memoirs, vol. II, pp. r8o-r.
15 AIi Mahir's speech is extensively quoted in Salah al-Aqqad, al-Arub
ua'l-harb al:alamiyya a,-thaniyya (The Arabs and the Second
World War), Cairo 1966, PP. r9-2o.
16 A letter from Husain Sirri, Ali Mahir's successor as Egyptian prime
minister to Rashid Ali al-Gaylani, Iraqi prime minister, dated z8
December r94o, refers to talks having taken place between Nuri
al-Sa'id and Ali Mahir concerning an Arab alliance negotiations for
which were to be resumed that year; Abd al-Razzaq al-Hasani,
al-Asrar al-hhafiyya fi hawadith sanat rg4r al'tahowuriyya (Hidden
Secrets of the Liberatory Events of r94r), 2nd ed,, Sidon, 1964,
P.67.
17 Husaini, The Muslem Brethren, P. rr9. Compare the prayer of
Muslim schoolboys cited in appendix D of Lane's Mannws and
Customs oJ thc Modern Egyptians: 'O God, destroy the infidels and
potytheists, thine enemies and the enemies of the religion' OGod, make
their children orphans, and dcfile their abodes and cause their feet
to slip, and give them and their families and their households and
their women and their children by marriage and their brothers and
their friends and their possessions and their race and their wealth
and their lands as booty to the Muslims: O Lord of the beings of the
whole world'.
18 At a meeting between Jewish Agency officials and Foreign Ofrce
officials on 2r March 1945, and in a letter from Dr Weizmann to
the secretary of state for Foreign Affairs, of z7 March. I am indebted
428
 NOTES
for this information to the Weizmann Archives, Rehovoth, Israel,
19 The expression is curiously un-English; it seems, rather, a literal
translation of a phrase which occurs frequently in modern Arabic
political rhetoric: 'Mufahhiru al-atab'. One wonders how it got to
figure in Mr Eden's brief.
zo The list is reproduced.in al:Irlaa, Sidon, August r95r.
2r Compton Mackenzie, Eastern Epic, vol. r, r95r, p. 93.
zz Hislory of the Second Woilil War: the Med,itenanean anil thc Middle
East, vol. II, 1956, p. 334. See also L. Hirszowicz, The Third Reiah
and the Arub East, 1966, chapters 5-8, and E,. Kedourie h Middle
Eastern Studies, vol. 3, r966-7, pp.rgo-4.
z3 Harold Macmillan, The Blast of War, rg1g-rg41, 1967,p. 44iDu,fr.
Cooper, Old. Men Foryet, 1953, p. 323, and Sir Llewellyn Woodward,
British Foreign Policy in lhe Seconil Worlil War, 196z, pp. rzo-2,
257 and 274.
z4 W. S. Churchill, The Seconil Worlil War: vol. III The Grand, Alliance
r95o, pp. zg4 and 7t4.
25 Great Britain, Foreign Office, Statements of Policy by the United
Kingdom in respect of Syria and the Lebanon, 18 June-g September
r94r, Cmd. 66oo (1945), p. z.
z6 Charles de Gaulle, MCmoires ile guere, vol. l, L'Appel, tg14, p. 468.
2? I-etter from de Gaulle to Sir Miles Lampson, Cairo, 3 June r94r,
ibid., pp. 413-4.
z8 Cmd. 66oo (ro45), pp. z and 4.
z8a Memorandum of a conversation between Mr Casey and State
Department officials, Washington 8 January 1943, Foreign Relations
of the Ubited States, 1943, vol. IV p. 954.
29 Georges Catroux, Dans labataille de MeditqranCe, t949, pp. 176-8.
3o lbiil., p. z6z.
3r De Gaulle, MCmoires, vol. I, pp. 599{oo; Jacques Soustelle, Enaers
et conbe loul: De Londres d Alger, 1942, p. 3fu.
3z Charles de Gaulle, MCmoires de guenc, vol. II, L'UnitC, 1956, pp.
35o-r: telegrams of 9 and rr August r94z from de Gaulle in Cairo
to the Free French delegation in London. A dispatch from the U.S.
consul at Beirut, William M. Gwynn, dated rz August 1942, in which
he reported a conversation with General Holmes, commander of the
Ninth Army, is of interest in this connection: 'I expressed the view',
wrote Gwynn,'that no greater folly could be imagined than to attempt
to hold elections at a time when no one dared to express his mind for
fear of an English or French concentration camp or a Lebanese or
Syrian prison , . . when there was no popular demand for elections,
the population thinking of nothing but bread, and when, finally, no
elections were being held in Iraq, Palestine, or England itself. He
said he quite agreed. I asked him if he could explain why then
429
 NOTES

General Spears was so insistent on having them held in the immediate

future; he replied that the insistence came from London but could
not explain why'. See Foteign Rclotions of the United Slalcs 1942,
vol. IV, 1963, p. 6o9. A telegram from Consul Gwynn a month earlier
stated: 'syrian and Lebanese officials are being urged by British
Minister Spears to press their claim for independence and ignore so
far as possible Free French. In public pronouncements he appears to
take independence of two countries seriously but in private con-
versation he laughs at the idea'. Gwynn to Secretary of State, 13
JuJy, ibid., P. 5e8
33 The amendments are listed in Bshara Khalil al-Khuri, Haqa'iq
Lubnaniyya (Lebanese Truths), vol. z, 196o, Pp. 3oo-2.
34 This is Catroux'opinion; see dispatch from Lebanese minister in
Moscow, 4 December 1946, recording a conversation with Catroux
on the 1943 events, printed in Khuri, vol. z, pp. 3r8-zr.
35 Camille Chamoun, Morahil ol-istiqlal (The Stages of Independence),
rg4g, pp. 186-7.
36 At the end of the crisis, Camille Chamoun declared that it was not a
question of numbers, but of a principle, that five hundred men were
the same thing as ten thousand (or one hundred). See his declaration
quoted it Comespond,ancc d'Orient, no. 5r5, July 1945, P. 54. HapPy
the politician who can so easily and successfully insist on principlel
37 Aruwer by foreign secretary (Eden) to question by Spears, z9 Nlay
1945, H.C. Debe. 5s. Vol. 4rr, cols. 394r.
It
38 is most likely that the French allegations are correct. Such evidence
Eul can be gathered indicates that before the disturbances the French

were on the defensive and the Syrians provocative. See dispatches in

The Times ard Lc Monile for the period, and for Hama in particular
a valuable compilation by Uthman Haddad, Hasan al-Qattan and
Abd al-Hasib al-Shaikh Sa'id, Thawot Hama'old al-taghayan al-
forunsi (Hama's Revolt against French Oppression), vol. f, Hama,
1945.
39 Terms of the British ultimatum of 3r May in H.C. Debs. 5s., vol.
4rr, cols. 378-38o. Text of ultimatum from the British army
authorities to the French commander in Damascus in Conesponiletce
d,'Oient, n. 5r5, Pp.tG7.
4o H.C. Debs. 5s. vol. r3o, co. 47,24 November 1943.
4r Duff Cooper, Old Men Fwget, p. 323.
4z Tlae address is printed in Politique clrang)rc, lruJy 1947.
43 F. Stark, Dust in the Lion's Paw, 196r, pp. rz and 83.
44 Hendersot, Life and, Lethrs of Sir Douglas Newbold, 1953, pp. 43cr.
45 Major-General Sir Edward Spears, K.B.E., M.P., 'The Path to
tuab Unity', Grcat Bitain anil the EasI, April t945, p. 72.
430
 NOTES
46 The Times, z4 March 1945, third leader.
47 The question is discussed at greater length in my article, .Islam and
the Orientalists', Btitish Jounal oJ Sociology, September 1956.
48 Ireland (ed.), The Near East : Problcms and, prospects, p. 62.
49 'Toward Arab Unity', Foreign Affairs, October ry45, p. t2g.
5o Ireland, The Near Eost, pp.95 and 98.
5r Otiente Mod,erno, vol. XXI, tg44, p. 2.
52 Stark, Dr.rsl in the Lion's Paw, p. t3o.
53 'I have urged', wrote Hugh Dalton in his diary in January 1947
(High Tide and, AJter, ry62, p. r9o), .that instead of trying to make
a synthetic glue of alt the Arab states, including Egypt, we should
try to split them', But such an outlook was highly unusual in British
official circles. Similarly unusual was Isma.il Sidqi,s outlook when, in
the negotiations of 1946, he refused to involve Egypt with her fellow_
members in the Arab kague in a multilateral defence treaty: ,He
personally', stated a memorandum summing up his conversations
with the British in April 1946, .did not support tbe notion of making
treaties comprising political and military undertakings between
Egypt and the states of the Arab League, . See at-eadiyya ol-misriyyo
t88z-t954 (The Egyptian Question r88z-r954), Cairo 1955, pp.
499-5oo. This work is an official collection of documents.
54 Sir Edward Grigg, Biltish Forcign policy, 1944, pp. r49-5o.
55 Folke Bernadotte, To Jerusalem, r95r, pp. 24. Ttre meeting with
Nuqrashi took place on z9 May.
56 Abdullah's proposal was put before a meeting of Arab League
delegates at Amman at the beginning of December (before a meeting
of the League at Cairo which took place on 8 December). Abdullah,s
proposal is described by Ha za' al-Majali, Mudhahhiroti (My Memoirs),
t96o, p. 63, who was present at the meeting.
57 Z. Sharef, Three Days, tg6z, p, 72. Ttre author was secretary of the
provisional government of Israel, and well placed to report on nego_
tiations between Abdullah and the Zionists.
58 Muhammad Mahdi Kubba, Mudhahhiroti ... (My Memoirs ...),
Beirut,
1965, pp. z6o-r.
59 Sharef, Three Days, pp. 7z-3 and 2o5ff. Michel Bar-Zohar, Ben
Gourion, 1966, states (p. rZr) that the interview took place on ro
May.
6o See Muhammad Amin al-Husaini, Ha4a,iq ,an qailiyyat Filastin
(Truths on the Palestine euestion), 1954, pp. t74-5, for Nuqrashi,s
statement at Aley. sir J. B. Glubb has statecr (l soldier with the
Arubs, t957, p. 66), that up to the end of February r94g there was
no thought of armed intervention in palestine by the Arab League.
Arif al-Arif, al-Nahba (The Disaster), vol. z, Sidon, n.d. [c. rgJo],
43r
 NOTES

states (p. 38r) that Lzzam, the secretary-general of the Arab

League, was surPrised to hear on 14 May that Egyptian troops were
going to invade Palestine.
6r Glubb, A Sold,ier uith the Ar&s, pp. 63-6.
6z Abd al-Razzaq al-Hasani, Tarihh al-uizarat al'haqiyya (History of
Iraqi Cabinets), vol. 7, 3rd ed., Sidon, 1968, p.2761Khalil Kanna
aLiaq amsuhu wa ghailuhu (Iraq Yesterday and Tomorrow), Beirut
1966, pp. 8z-3.
63 In a conversation with the Syrian diplomat Armanazi in May r95r;
see Najib al-Armanzi, 'Ashr sonawat fi'l-diblumasiyya (Ten' Yearc
1964, p. z5t,
in Diplomacy) vol. r, Beirut,
64 Text of the broadcast in al'Zaman, Baghdad, 17 December 1956'
65 Iraq's adventurous and aggressive policy in Syria and the I-ebanon
during this period was amply documented in the various trials which
took place in Baghdad following ttte coup il'Ctat of' 14 July 1958; see
in particular the evidence and documents presented at the trial of
Ghazi al-Daghistani, Rafiq Arif, Ahmad Mar'i, Yusuf Mahmud and
Sayyid Amin Bakr (who were high army officers involved in sub-
,"i.i*'u operations against Syria), and Fadil al-Jamali and Tawfiq
al-suwaidi (who were ministers directing policy under the regent),
in vols. I-IV and Yl ot Muhahamdt al-mahhomo al'ashariyyo al'
Alassa (Trials of the Special Military High Court), 1958-9'

9 The Kingdom of Iraq: A RetrosPect

r The best account of these events to be published so far is M*jzarat

compiled by ol'Hayat,
Qov at-Rihab (The Massacre of Qasr al-Rihab),
Beirut, 196o.
z The events of 1935 in Jabal Sinjar are described in Roger Lescot,
Enqu*te sur les Yoziilis ile Syrie et du Djebel Sind'jat, 1938, pp' r9o-5'
3 A fortnight before ttre coup il'Crat Abd' al-I-atif Nuri addressed a
letter to the minister of Defence saying that if he was not relieved of
financial worries he would fall into a despair the consequences of
which would be unpleasant. For text see Hasani, Iraqi Cabinets,
vol. 4, rst ed., PP. r8r-2.
4 His intermediary seems to have been the notorious Sab'awi, later
executed after the failure of Rashid Ali's movement' See abd al-
Razzaqal-Hasani, Hidden Secrets, rst ed. 1958, p' zo'
5 Documents on Btitish Forcign Policy, series r, vol. VII, 1959, Pp'
Prcceedings of the Third Conference of Hythe, 8-9 August
?2o-r.
r92O.
6 John Bowle, Visaount Samuel, P. zo6.
7 Dispatch from Consul Thomas R. Owens, Baghdad, ro May 1923,
I4r.9ogl23.
432
 NOTES
8 I*tter from Austen Chamberlain to L. S. Amery, C,eneva, rr June
1925, Austen Chambcilain Popets (Box AC SS).
9 ktter from Dobbs to Shuckburgh, Baghdad, 15 January 1929,
Sudan Archive, University of Durham, frle 47zlrg.
ro Elizabeth Burgoyne, Geilrudc Bell fiom het petsonal papers t9r4-
1926, 196r, pp. 27o-r.
rrBurgoyne, Geilsu.ile Bell, pp. 273, z7g-8o, zg4 and 3oz.
rz Private information; Hasani, Iraqi Cabinets, vol. 3, p. 96; Gerald
de Gaury, Three Kings in Bagfuld, 196r, p. 86.
13 The remark, on p. 2r2, occurs in an anon3znous note on .King Faisal
as a Political Factor in the Emancipation of Iraq from the Man-
datory Regime'which in its short sentenceE and clipped prose and
in its familiarity with local conditions, contrasts strongly with tle
treatment of middle eastern questions in the Surveys of ttrose years.
14 Dispatch from Sloan, Baghdad, zz luJy rg3z, 8q g.oor Faisal/36.
15 B. H. Bourdillon, 'The Political Situation in Iraq, (read to the British
Institute of International Afiairs, 7 October rgz4l, Journal of the
British Institule of International Affairs, vol. III, rgz4, p. 278.
16. Kedourie, Englanil anil the Miilille East, pp. 2o7-r2.
17 Hasani, Iraqi Cabinets, vol. r, znd ed., 1965, p. 43 fn. r.
18 Dispatch by Consul Thomas R. Owens, Baghdad, 7 luly rgzt,
89og.a137.
19 Letter from Miss Bell to the American diplomat E. van H. Engert,
then Chargd d'Affaires at Tehran, Baghdad, r August r9zr, enclosed
with Engert's dispatch from Tehran, 5 September r9zr,89og.oo/4o.
zo The artificial deference towards Faisal which the British imposed
and encouraged, the deliberate and diligent build-up of a mon-
archical court and its trappings, comes out well in Miss Bell's leters
from tgzz until her death in 19z6. A different attitude is disclosed
in L. E. O. Charlton's autobiography, Chaillon, r93t. Charlton, who
served as chief of air staff in Iraq, wrote of himself, p. 273: ,He
dined out now and then with officials of the civil administration and
sat at one or two banquets given by Faisal on various occasiotrs of
Arab ceremony. For some reason or other, it was distasteful for him
to see English ladies curtsey before this trifling potentate, who, at
that time, was supported entirely by the force of British prestrge,.
zr Miss Bell to Engert, z5 September rg2t, enclosed with Engert,s
dispatch from Tehran, 16 October r9er, 89og.oo/4r; Consul Owens,
dispatch from Baghdad, r November rg2t,89og.oo/4r and his dis-
patch of zo January ryzz,8gog.ool45.
zz Consul Owens' dispatch from Baghdad, z3 August tg4,8gog.ool77.
z3 See dispatch from American consul Thomas R. Owens, Baghdad,
r September rgzz, and enclosures, Sgog.oo 1 57. A biographical sketch
43s
 NOTES
of al-Mudarris by Khairi al-Umari is published in at-lglatn,Baghdad,
vol. r, no. 4 (December 19641, pp. 76-87.
z4 Abbas Lli, Za'im ol'thaura al-iraqiyyo (The Leader of the Iraqi
Revolution), Baghdad, r95o, P. r5r, In a contemPorary dispatch,
the U.S. Consul wrote: 'It is said that he [Faisal] met a number of
shi,ite Mujtahids shortly after his arrival and in their presence took
an oath on the Koran that he would never accept the mandate or
anything else less than complete independence" Dispatch from
Owens, Baghdad, r8 August, t9zz,8gog.ool55.
z5 Abd al-Aziz al-Qassab, Min d,hihtayald (Recollections), Beirut 1962,
pp. zzt4 and, z3r-2, See also AIi Jawdat, Dhihrayat (Recollections),
beirut rgOZ, pp. r48-r57, for his activities in Hilla and Najaf ; and
John Batatu, The Shoihh atd the Peasant in lraq t9t7-t958,
P}rD'
ihesis, Harvard University, 196o, pp. 8o-r, quoting secret British
reports. Batatu mentions (p' 8z) similar tactics adopted by Jamil
al-Midfa'i ir rgzT wtrer. mutosarif ot Diwadyya.
z6 Repott on the Ad,ministration oJ 1ru4, April tgzz-Morch 2923,
Colonial No. 4, rg2 4, Pp. r7-8. See also the exchange of letters between
the cabinet and king printed in Hasani, Iraqi Cabinets, vol' r,
PP. 87-90'
z7 Burgoyne, Geilrude Bell, pp. z7r-2.
z8 'Open defiance of the authority of government such as presented a
dangerous likelihood of insurgence is the sole ground on which the
R.A.F. has been called upon to fulfil its legitimate role in assisting the
local administration to preserve internal peace'. Colooial No' 4' P' 22'
z9 Sati' al-Husri, SaJahat min al-madi al-qa'rib (Pages from the Recent
Past), 1948, P. 16.
3o Dispatch from Sloan, Baghdad, 3 February r93z,8gog'oolt76'
3r Dispatch from Sloan, Baghdad, z December r93r, 89o9'oo/167'
lz 89og.oo1176 and 89o.oo Faisal/36, both cited above, and dispatch
from Sloan, Baghdad, 25 SePtemhr r93r, 89og.oo/165'
33 l-€tter from A. K. Sloan (who had been Charg6 d'Affaires in Baghdad)
to Wallace Murray, Department of state, Jerusalem, 18 March 1933'
34 Text of telegrams in Hasani, Iraqi Cabinets, vol. 3, pp' 158-9,
and
t7t4.
35 Orienle Moderno, vol. 13, ry33, P. 472'
36 Dispatch by Knabenshue, Baghdad, 3o August 1933,
89og'oo
Ghazifi, telegram from Knabenshue, Baghdad, 4 September,
89og.oolz65, and dispatcb by him, Baghdad, 19 September, 89og'oo
General Conditions/r4.
37 Maurice Peterson, Both Sides of the Curtain, r95o, P' r38. Sir Maurice
Peterson is perhaps the only English writer with official connections
who, when dealing with Iraqi politics under the monarchy, did not
choose to disguise and Palliate.

434
 NOTES

38 J. M. Keynes, Tuo Memobs, rg4g, pp. 4r-2.

39 Husri, Pages from the Recent Past,pp. rg-22. Al-Husri, whom Faisal
consulted regarding his son, decided that Ghazi was not congenitally
backward but merely retarded. On Ghazi's boyhood and schooldays
in England see de Gaury, Three Kings in Baghdad, pp. S2-3.
4o lbid,., p.ro3.
4r Dispatch from Jerusalem, 30 October 1933, 89og.oo/8o.
4z Mud,hahhirat Taha al-Hoshimi ryg-rg42 (Diaries of Taha al-
Hashimi rgtg-rg4z), Beirut tg67,pp. r48, 15r, zz4and47z. Accord-
ing to Naji Shawkat - an ex-prime minister - as reported by Hasani
(Iraqi Cabinets, vol. 5, zr,d ed,., 1967, p.76 tn. r), Nuri al-Sa.id,
Rashid Ali, Rustum Haydar and Taha al-Hashimi were full of joy
at the news of Ghazi's death, 'these four having sustained harm
through Bakr Sidqi's movement'.
43 Yunus Bahri, Sab'at ashhur fi sujun Baghd,ad, (Seven Months in the
Prisons of Baghdad), Ileirut, 196o, p. rrg.
44 89og.4t516, dispatch from Knabenshue, Baghdad, 3o March 1939.
45 Ali al-Tantawi, Baghdad mushahad,at wa ilhihrayat (Baghdad: Scnes
and Memories), Damascus 196o, pp. 84-6.
46 Bahri, Seven Months in the Prisons of Baghdad, p. rr9.
47 'Reports dating from May r9zo, indicated that hostile organisations
well supplied with funds existed for the purpose of collecting and
forwarding arms and ammunitions to Iraq'. Report on Iruq Ail-
ministration Octobu rg2o-March zgzz (Colonial Office), n.d., p. 3r.
48 An amendment to the penal code passed in June r9z3 gave the
Iraqi government the right to deport foreigners for political offences.
On the strength of this law shaikh Mahdi al-Khalisi was soon after-
wards arrested and deported; Repoil on the Aibninistration oJ lrq
Apil tgz3-Decertber 1924, Color,ial No. t3, rg21, p. rr. Faisal
himself, 'hunting with the hounds and running with the fox,, as
Miss Bell put it, intrigued with these divines while agreeing to their
deportation. See Burgoyne, Geilruile Bell, pp.3r3, 3r7 and 32r.
49 Colonial No.+, pp.+-5.
5o Article by Salman al-Safawani, quoted in Abd al-Rahman al-Bazzaz,
Muhailaral 'an aLftaq min al-ihtilal hatta al-istiqlal (Lectures on
Iraq from Occupation to Independence), Cairo 1954, p. 4r.
5r Ali al-Bazirgan, al-Waqa'i' ol-ha4iqiyya fi,|-thaura al-iraqiyya (Tlrle
True Events of the Iraqi Revolt), Baghdad, ry54, p. 24o.
5z Dispatch from Sloan, Baghdad, 16 January r94r, 89og,oo/r3g;
dispatch from the same, Baghdad, zr July r93r, 89og.oo/r54; and
letter from him to W. Murray, Dept. of State, Jerusalem, rz Decem-
ber 1932.
53 Bazirgan, The True Events of the Iraqi Revolt, p. 7o.
54 Document enclosed with dispatch from Sloan, Baghdad, r r February
435
 NOTES

1932, 89og.oo lrTg; fot complete text, see appendix' An interestiug

account of the Sunni-Shi'ite rift in the last years of the mandate
may be founcl in the autobiography of the well-known Egyptian
writer, Ahmad ltmin, Hayati (My Life) (znd ed'), Cairo, 1952, pp'
238ff. Arrother interesting outside reaction is that of Reza Shah's
famous minister Teymourtache who in r9z9 complained to the U'S'
Charg6 d'Afiaires that Iraq refused to recognise the capitulatory
rights of Persia which might protect Persian subjects 'against the
Sunnite fanaticism of the Iraqi'; dispatch from R' A' Wallace
Trent, Tehran, 2 February rg2g, 74r,grlto8.
55 Hasani, Iraqi Cabinets, vol. 4, PP. 7r-3.
56 lbiil., vol.3, p. r9r. Official attitudes towards the Shi'ite position
may be illustrated by a conversation between the U.S. consul and
Faisal's assistant private secretary, Abdullah al-Hajj. C,ommenting
on Kurdish demands of autonomy in r93o, the latter remarked that
the Kurds were 17 Per cent of the population but had zz Per cent of
government Posts, whereas the Shi'ites, forming 6o per cent of the
population were content with only r5 per cent of government posts
arrd z5 per cent of seats in Parliament; what then had the Kurds
to complain oI? Dispatch from Sloan, Baghdad, &gog.ooltz7'
57 Oiente Moilcrno, vol. xv, t935, P.326.
58 In a dispatch ol 4 Decembet tgz8, Sir Henry Dobbs stated that the
enforcement of conscription rvould cause widespread risings, and
that unrest had already been caused in Basra by a census which
was feared to be a prelude to conscription' A Kurdish deputy, Ismail
Rowanduzi, declared in a letter published in The Baghilad Times,
rz November rg27, that both Shi'ites and Kurds were equally
opposed to military conscription; see Hasani, Iraqi Cabinets, vol' z,
pp. 96-7,The following August a deputy, Shaikh Abd al-Abbas
al-Farhud of the bani Rabi'a declared at a meeting of Sovernment
deputies that he had a following of 3ooo men and 'would rather go
over to Ibn Sa'ud than have them conscripted'; see John Batatu,
The Shoihh anil thc Pcosont in ltq rgrT-r958, p. 56, quoting a
contemPorary secret report in the Security Library, Baghdad'
59 Repoil ot the Adminislration of ltq rgz7, Colofial
no' 35, p' 18'
Oicnlc Moilerno, vol, 7, rgz7, P. 6o9; Hasani, Iraqi Cabinets, vol' 6,
p, 146, for text of tribesman's letter.
6o Oienle Moilesno, vol, g, rgz7, PP. 88 and rzgi Colonial no' 35, P'
r59'
6r Abd al-Razzaq al-Hassan, Al'Uruba fi al-mizan (Arabism in the
Balance) ; see C. A. Nallino, Rccentissimi publicazioni di polemica
politico-rcligiosa musulmona nel||ru4, Orbnte Moilemo, vol' 13,
1933, pp. 596-{r,4, also reprinted in his Raccolta di Suilti eiliti e

$6
 NOTES
ineilili, vol. 3. See also Muhduorot al-imom al-muslih Kashif al-
Ghita al-Shaihh Muhommd, al-Husoin ma' ol-sofirain al-brita*i
wa'l-omarhi fi Bqhild (Conversation of Shaikh Muhammad al-
Ifusain Kashif al-Ghita with the British and American Ambas-
sadors), Najaf, 1954, pp. 36-8, where the Shi'ite divine describes the
disorders occasioned by this book.
6z Text of Basra petition in Hasani, Iraqi Cabinets, vol. r, znd ed.,
PP.?7-80.
63 Mosul Commission Report, 1925, p. 38,
64 Qassab, Recollections, pp. 248fr.., 259ft..
65 Reaicw of the Cioil Ailministrution of Mesopotamia, Cmd. ro6t, rg2o,
p.94;'The Jewish corumunity in the city of Baghdad is a very
important section of the community, outnumbering the Sunnis or
Shi'iahs'. According to the last Ottoman official yearbook of the
Baghdad vilayet as quoted in t}re Arub Bullctin, no. 66, zr October
r9r7, the population figures for the city of Baghdad were as follows:
Arabs, Turks and other Moslems except Persians
and Kurds ror,4oo
Persians 8oo
Kurds 8,ooo
Jens 8o,ooo
Christians t2,ooo

The importance of Baghdad Jewry may be gauged by other indices.

For instance a proclamation of the military governor in r9r9 fixed
the number of sheep to be slaughtered daily in Baghdad east, the
more populous part of the city, at zzo for Jewish butchers and 16o
for Muslim butchers; Baghdad Times, z4 March r9r9. Again, when
the Baghdad Chamber of Commerce was set up in 1926, the ad-
ministrative council was composed as follows: I member repre-
senting the banks, 3 membrs representing British merchants, r
member for the Persian merchants, t memhr for the Christian
merchants, 5 for the Jewish and 4 for the Muslims. Dispatch from
U.S. consul J. Randolph, Baghdad, ro November 19z6,8gog.oolro8.
66 Sulaiman Faidi, Fi ghamrat al-nidal (In the Midst of the Struggle),
Baghdad rg5z, pp. zr8-9.
67 Instructions by the Acting Civil Commissioner to Major Noel,
Precis of Affairs in Southern Kuriliston iluting lhe Greal Wat, Office oI
the Civil Commissioner, Baghdad, r9r9.
68 On Kurdish afiairs generally in this period, see C. E. Edmonds,
Kurds, Turhs and Arabs, 1957.
69 Bourdillot, loc. cil., p. 287.
7o Clippings from The Baghda,il Times enclosed with dispatch from
U.S. consul Randolph, Baghdad, 12 June 1964,74t.9o9145.

437
 NOTES

Zt lraq Government, Ministry of the Interior, Majmu'al mudhiihafit

al-majlis, al-ta' sisi al-iraqi (Debates of the Iraq Constituent As-
sembly), Baghdad, n.d., p. 44o.
Z2 See Edmonds, I{uril,s,Tuths anil Arabsi he describes (p'+tS) how he
did his trest to calm the fears of a member of the commission regard-
ingtheresultsofa decision in favour of Irag. The Anglo-Iraqi treaty
was due to expire within three years, but this, said Edmonds, was a
concession to 'extremist opinion' in both England and Iraq and
'nobody seriously contemplated the possibility that, before the
expiry of four years, the treaty would not be renewed for a further
period'.
73 Miss G. Bell to Lady Bell, rz March 1925, Gertrude Bcll Papers,
University of Newcastle.
74 Austen Chamberlain Papers, Box AC57.
75 British pressure on the Kurds continued unremitting up to the last.
The prospect of independence aroused discontent among the Kurds
in the summer of r93o. A delegation composed of the acting Iraqi
prime minister and the acting British high commissioner visited
I{urdish areas in order to impress on the Kurds that Baghdad and
the British were at one in resisting demands for I{urdish autonomy.
The delegation was not well reccived and was followed by riots in
Sulaimaniyya; dispatch from U.S. consul R. Y. Brown, Baghdad,
r5 September r93o, 89og.oo/13r. In r93r the Kurdish leader Shaikh
Mahmud started a rebellion which the Iraqi army was left to tackle
so that it might be 'blooded'before independence; it did not prove
very successful and tbe royal air force had to intervene; dispatch
from Sloan, Baghdad, rr June r93r, 89og.oo/r5o.
76 See Oilenle Moil,erno, vol. rr, r93r, P. ro7, for the outspoken remarks
of a Kurdish deputy.
77 Muilhdhofit al-majlis al-ta'sisi, pp. tz66-7; the debate on separate
representation for the communities is found on PP. r,246fr.
78 Colonial No. 44, rg2g, PP. 9-ro. In a dispatch of zr May rgz8
(89og.o3/9) Randolph stated that th;e mutosarifs in the provinces
were the government's election agents to whom were circulated lists
of secondary electors and members who had to be elected.
79 Khalil Kanna, a minister under the monarchy, put forward in his
Metnoirs the original argument that electoral contests in the
provinces would have endangered public security, and that the
'election' of government nominees protected the people against
violence between various factions. This should count as an argument
against parliamentary assemblies in places like Iraq, not so much as
one in favour of packing them. See Kanna, Iraq; its Yesterday and
To-morro'rv, p. 8o.

438
 NOTES
8o See article Hizb (Arab countries) by E. Kedourie, Enycyclopacdia oJ
fshm (new edition), 1968.
8r Muhammad Mahdi Kubba, Memoirs, p.352.
8z A. D. MacDonald, Euphrctes E*ile, t936, pp. 54-6.
83 His biographer remarks on the diminished grasp of public affairs
which Curzon showed in this period; Ronaldshay, Life oJ Curzon,
vol. III, chapter 15.
84 Policy in lraq, Memorandutm by the Seuetary of State for the Colonics,
Cmd. 344o (rSzq.
85 Miss Bell's letters to Engert, Baghdad, 3 Is.[.ay tg2t, enclosed with
Engert's dispatch from Tehran, r June r9zr, 89og.oo/39.
86 Review in The Iruq Times, zr March 1938, enclosed with dispatch
from Knabenshue, Baghdad, 9 April 1938; in the accompanying
dispatch the anonymous author is stated to have been Judge Lloyd,
then a judge of the Iraq Court of Appeal.
87 'Current Affairs in fraq', from a correspondent in Baghdad, Journat
of the Royal Central Asian Society, vol. ro, 1923, part 2, p, r42.
88 MacDonald,, Euphrales Eille, p. 8r.
89 Draft dispatch irt Austen Chambeil.ain Paperc (Box AC57).
9o Dispatch by Dobbs, Baghdad, 4 December 1928, in Suilan Archiue,
University of Durham, frle 47214.
9r Historical Summary by Sir H. Dobbs in The Lettets of Gertruile Bell,
vol. II, 1922, p. S4S.
92 There was, among other things, an attempt on the life of two pro-
British deputies who were grievously injured: see Burgoyne, Geilruile
Bell, pp. 34o-t.
93 Burgoyne, Gertrude Bell, p. 343.
94 The text of the British ultimatum is given in Hasani, Iraqi Cabinets,
vol. r, znd ed., p. r85.
95 Dispatch from U.S. consul Randolph, Baghdad., z4 May rgz8,
89og.o3/2, and z August rgzg, 89o.oozlzo. In a dispatch oL z May
1935 (89o.gooz General Conditions/53) the U.S. minister Knaben-
shue reported that Cornwallis (who had been the senior adviser at
the interior in r9z8) did not have his contract renewed because of
opposition by Yasin al-Hashimi, then prime minister. It may be that
Yasin remembered and did not forgive Cornwallis's role in the elec-
tions of r9z8 which had led to the defeat of his faction.
96 Policy in lroq, Memwandum by the Secretary of State for the Colonies,
Cmd. 344o (tszil.
97 The Arab oJ Mesopotamia, tgrg, pp. to-2.
98 For instance, a tribal leader, Hajj Abd al-Wahid Sikar whose tribe
had risen in support of Yasin al-Hashimi had a fairly large sum of
money due Ior land and water taxes written ofi when the latter
came to power in 1935; dispatch from Knabenshue, Baghdad, z May
1935, 89og.oo General Conditions/53.

439
 NOTES

99 Colonial No. 4, p. ro.

roo Colonial No. 4, pp. 7r-2.
ror An lrquiry into Land Tenure ond ReldeilQueslions, p. 27. An excel-
lent anonymous note on 'The Middle Euphrates District of Iraq',
inThe Surucy of Intcrnational Affoits rg34;PP. z13-6, which betrays
detailed local knowledge states that a'notoriously unjust decision
in an important land case in 1933 had effectively destroyed the
trust of the tribes in the justice of the government' and that in
Muntafiq 'a land settlement commission, consisting entirely of
Iraqis, failed badly in t93r-2'.
roz See Salah al-Din al-Nahi, Muqqadima fi ol-rCro' ua tizom al-ardi
fi'l-Ira1 (An Introduction to Feudalism and the Land System in
Iraq), Baghdad, 1955. There is no satisfactory published study of
land settlement in Iraq under the monarchy. D. Warriner, Lord atd
Panrty in the Miildle Eost, 1948, and. Lonil Reform aill Dewlopment
in the Miilille Eost, t957, touch on some aspects of the question.
S. Haider, Lotd Problcms oJ lrq, University of London unpublished
thesis, 1942, an excellent piece of work which deals with the period
before r9r4, is indispensable for understanding subsequent de-
velopments. Batatu's Shaihh o*d Peasant is a most competent study
of landownership and land policy under the monarchy. A recent
work, useful but hardly adequate, is Muhammad Taufiq Husain,
Nihoyat ol iqto' fi'l-Iruq (The End of Feudalism in Iraq), Beirut,
1955. See also Ja'far Khayyat, al-Qoryo al-hqiyya (The Iraqi
Village), n.p., r95o.
ro3 Dispatch from Randolph, Baghdad, z6 May 1928, 89og.o3/3.
ro4 The confiscatory legislation of r95r is conveniently set out h The
Baghilad, Chamber of Comrurce Joumol, nos. 3-6, r95r. The Oficial
Report of the Chamber for r95o-r, gives details, pp. 169-179, of two
meetings between the Council of the Chamber and the Secretary-
General of the Department of Frozen Property, and of the help
given by the Chamber to facilitate an inventory of conf,scated goods.
ro5 WLen Ghazi died Nuri al-Sa'id, then prime minister, let it be known
that unless the Parliament elected Abd al-Ilah regent, the army
would intervene; see Hasani, Hidden Secrets, rst ed., pp. 27n.
Hasani also reports (Iraqi Cabinets, vol. 5, znd ed., p. 75 frr,.t) tlat
Taha al-Hashimi informed Ali Jawdat - an ex-prime minister - that
if Abd al-Ilah were not elected the army would intervene.
ro6 Hasani, Iraqi Cabinets, vol. 8, PP. 155-7.
ro7 Fadil Husain, Taihh al-hizb al-watoni al-dimiqroti, t94Lt958 (His-
tory of the National Democratic Party 1946-1958), Baghdad 1963,
PP. 304-5.
ro8 C, L. Sulzberger, 'German Preparations in the Middle East', Forcign

440
 NOTES
Affairs, t942, p.667.In his Recollections (p. z4r) AIi Jawdat admits
that Hajj Amin received ofrcial subsidies.
ro9 Salah al-Din al-Sabbagb Furson al:urubo fi'l-Iruq (The Knights of
Arabism in Iraq), Damascus, 1956, p. r 19. These are the posthumous
memoirs of one of the prominent army officers behind Rashid Ali.
rro Rumours of the impending ofier to Ali of the Syrian throne were
intermittently heard in the late rgzos and early r93os. One such
rumour is recorded by a report from U.S. vice-consul B. Livingston,
Baghdad, z8 February r93r, 89og.oo/r42.
rrr Hasani, Hidden Secrets, rst ed., pp. 27-9.
rrz Amin al-Mumayyiz, al-Mamlaha al-arabiyya al-su'uiliyya homa
'araftuha (The Sa'udi Kingdom as I Knew It), Beirut, 1963, p. 33.
The author was Iraqi ambassador in Saudi Arabia 1954-6. He
remarks elsewhere (p. 6zo) in his memoirs:'What have we Iraqis
to do with the Hijaz? When we accepted Faisal I as king of Iraq we
did not underta,ke to restore the throne of the Hijaz to his brother or
his nephew. Why then these enmities between us and the Saudis
today...?'
rr3 See the evidence presented in the People's Court at Baghdad at the
trial of Abd al-Jalil al-Rawi in October 1958; Trials of the Special
Supreme Military Court, vol. 4, rg1g, pp. r,6zoff. (evidence of
Muhammad Salmao Hasan, Jabir 'Umar, Salim al-Nu'aymi and
of the accused, and the documents cited by the prosecution), also
Kanna, Memoirs, pp. r3c-r, and King Husain of Jordan, Uneosy
Lies thc Head, 1962, p. r9o.
rr4 See Patrick Seale, The Struggle Jor Sytia, 1965, passim. Ample
evidence concerning Iraqi policy in Syria and Abd al-Ilah's active
role in its formulation and conduct was presented at the trials ol
the People's Court in Baghdad after Qasim's aoup il'Ctat; see Trials,
vol. r (trial of Ghazi al-Daghistani), 1958, vo. 3 (Trial of Fadil
al-Jamali), 1959, vol. IV (trials of Burhan al-Din Basha'yau, Ahmad
Mukhtar Baban and Abd al-Jalil al-Rawi), 1959, and vol. 6 (trial
of Tawfq al-Suwaidi), 1959.
rr5 Kanna, Iraq Yesterday aud To-morrow, p. 286.
116 Text of address in Sati'al-Husi, Ara' wa ahadilh fi'l-torbiyyo
@o'l-lo'lim (Opinious and Addresses on Pedagogy and Education),
Catuo, 1944, pp. 68-15.
rr7 Sati' al-Ilusri, Muil,hahhirati fi'l-Iraq (My Iraq Memoirs), vol. r,
Beirut, 1967, p. 8o.
rr8 lbiil., pp. t67fr.. Tbe ofrcial apologia for the refusal to provide
subsidies to communal schools appears inllre Repoil on thc Ailminis-
baliott of lrq tgz7, C-olonial No. 35, rgz9i 'A feature of the last
year has been the attempts made by the Jewish community to get
a government school in Baghdad for Jews, The Jews have a moral
44r
 NOTES

claim to be heard because, by providing so many schools of their

own, they relieve to that extent the pressure on government schools.
But under the present financial stringency it is difficult for govern-
ment to maintain a school for a community which already provides,
though at its own expense, proportionately more primary schools
for its children than the government provides for Mohammedan
children'.
r19 Husri, My Iraq Memoirs, p, ro.
rzo lbiil., pp. 429-80.
rzr Mahmud Azmi, Jabha min shu'ub al-arabiyya (A Front of Arabic-
speaking Peoples), al-Hilal, November 1938, p. 3. Azmi taught for
a period at the Law College in Baghdad.
r22 Husri, My Iraq Memoirs, pp. 215-6.
r23 Tantawi, Baghdad: Scenes and Memories, p. rr2,
rz4 Colonial No. 35, p. r59.
r25 Kanna, Iraq Yesterday and To-morrow, p. 52. It was precisely then
that Sab'awi established his first contacts with the officers Sala^h
al-Din al-Sabbagh and Fahmi Sa'id - contacts which assumed much
importance in the military cor,tps d'ilat oL the late r93os, and par-
ticularly in Rashid Ali's movement of r94r. See Hasani, Hidden
Secrets, rst ed. p. rz.
rz6 Tantawi, Baghdad: Scenes and Memories, pp. 84-6.
r27 Hasani, Iraqi Cabinets, vol. 4, p. 48.
rz8 Abdal-Rahman al-Bazzaz, Safahat min ol-ams al-qarib (Pages from
the Recent Past), Beirut, 196o, pp.7r-2.
rz9 Fahmi al-Mudarris, Maqolat Siyasiyya (Political Essays), r93r,
pp. t22,92-3 and r3o.
r3o de Gaury, Three Rings in Baghilail, p. 49.
r3r Burgoyne, Gertrude Bell, pp. zgr, 286 and 346.
r32 Hasani, Iraqi Cabinets, vol. r, znd ed., pp. 154-5. See also Mumayyiz,
The Sa'udi Kingdom as I Knew It, p. 277.
r33 Text of his instructions in Hasani, Hidden Secrets, rst ed,, pp. 52-3.
See also M. Khadduri 'General Nuri's Flirtations with the Axis
Powers', Miildlc East tournal, vol. XVI, 1962.
r34 Futsan ol:utuba, pp, 7o-r.
r35 Hasani, Iraqi Cabinets, vol. III, p. 54.
136 Oriede Modcrtto, vol. XX, r94o, p. 3o2. See also Hasani, Iraqi
Cabinets, vol. 8, p. ro8; 'Sami is considered one of the most intimate
of Sayyid Nuri al-Sa'id's entourage'.
r37 Peterson, pp. r4r-3; Peterson refers to Nuri's 'restless brain'and
detects in him 'a certain instability'. In this, too, he stands alone
among British writers - academic or official - who have always
painted Nuri in the most admirable colours.

442
 NOTES
r38 Cl6ment Huart, H,kloire ile Baghdan dans les temps nwilunes, tgor,
P.'54.
r39 Abbas al-A.zzawi, Tarihh al-Iraq bayn ihtilalairz (History of Iraq
Between Two Occupations), vol. vii, Baghdad, 1955, p. 50.

ro'Minorities'
I H. G. O. Drvight, Christianity in Turhey, 1854, p. 93.
2 Ibiil., p. rtz.
3 Ibid.., p. 244.
4 Turkey (no. 6), Cmd. 8ro8 (r896).
5 Dwight, Christianity in Turhey, p. r ro.
6 E. M, Bliss, Twhey and, the Atmenian Attocities, 1896, p. 335.
7 Dwight, Chistianitl, inTwhey, pp. 148-9. For a detailed account of
the schism see Leon Arpee, The Armenian Awahening, rgog.
8 F, Macler, Autour d,e I'ArmCnie, rq7, pp. 68-72, On the reorganisa-
tion of the Arnrenian community in the r86os see R. H. Davison,
Reform in the Ottoman Empirc 2856-1876, 1963.
9 A. O. Sarkissian, History oJ the Armenian Question to t885, rg38,
P. r37.See also G. Young, Corps de ilroit oltoman, 19o5-6, vol. II,
pp. 76-28, for the defeat of the hierarchy.
IO The Armenian revolutionaries seem to have reasoned that Russian
would be a lesser evil than Ottoman domination; also perhaps they
could not bring themselves to believe that Russia, hostile as it wa^s
to the Ottoman Empire, might be just as hostile to them. In an
articlewritten in rg3z (and republished in 1958) Martin Shatirian, who
is described as a 'charter member'of the Armenians Revolutionary
Federation, wrote that 'some of us even thought that Russia's
attitude w.rs one of those inexplicable, temporary enigmas'; see
M. Shatirian, 'The Founders of the A.R.F. on National Indepen-
dence', Armenian Reoiew, vol. XI (rSS8), no. 2, pp. g3-ro7. Russian
hostility to the Armenian revolutionaries is well known; the oftcial
Ottoman Report, Aspirations et agissetnents rioolutionnaires iles
societes arrreniennes aaant et aprCs l,a proclamation d,e la constitution
ottotnane, r9r7, gives, pp.4ofi., a useful account of this Russian
hostility in the two decades preceding the first world war.
II There is an excellent account of the diplomacy of the Armenian
Question in W. L. Langer, The Diplomacy of Imperialism, tgst,
pp. 145-66, r94-zr2 and 32r-5o.
t2 They could not cross it; witness the fate of the Armenian Republic
rn I92O.
13 Dispatches from Layard, Constantinople, no. 365, Confidential, 18
March 1878, and no. 383, Confidential, zo March, F.O. 78/2782;
see also no. 4or, Confidential, z5 March F.O. 78127$. In a

443
 NOTES
dispatch, no. rr52 of r9 September 1878, Layard rePorts an
interview with the Armenian Patriarch who demands an Armenian
vali for Armenia. The Patriarch, Layard reported, said that the
Armenians were accusing him of having misled them and of
having prevented their availing themselves of a Russian offer to
join in the war which, had it been accepted would have secured for
them complete independence, or at least autonomy; F.O.7812799.
On the intricacies of the Armenian Question at San Stefano see B.
H. Sumner, Russio anil the Balhans z87o-t88o, pp. 416-17.
14 Bliss, Turhey anil lhe Armenion Atrocities, P. 334.
t5 Docutnents d,iplomatiques francais, 3eme serie, tome VII, p. r5r.
16 For Russian discouragement of Armenian nationalism in the Cau-
casus see H. F. B. Lynch, Armenio, rgor; Sir Charles El-l.ot, Tuthey
'in Europe, r9o8, pp. 398-3; andLordWarkworth, Notesfroma Diary
in Asiotic Turhey, r898, PP. 99ff.
17 G. W. E, Russell, Malcolm MacColl, r9r4, p. r53. See also A. O.
Sarkissian, 'Concert Diplomacy and the Armenians, r89o-r897', in
A. O. Sarkissian (ed.), Studies in Diplomatic History anil' Histwio'
graphy in honout of G. P. Gooch, r96t.
18 Gooch and Temperley, British Documents, vol. X, part I, P. 488.
19 In a letter to Mme Novikofi quoted in H. W. V. Temperley, 'British
Policy in Turkey', Cam'bridge Historicol Journal, 1933, P. r85.
zo Eliot, Turhey in EuroPe, p. 13.
zr For a rutionole of bribery as a method of government see ibid., pp.
137-8, and especially the witty introduction. See also Curzon,
Persia, vol. I, pp. 438-48.
zz See Lynch, Armcnio, vol. I, p.84 ; and the comments of Vice-Consul
Fitzmaurice at Urfa in 1896, Turkey (tto. S), Cmd. 83o3 (r8SZ),
p..ro2, on the use of the telegraph by the central Ottoman govern-
ment to keep the provincial valis informed of Armenian incidents
in the empire to prevent the spread of harmful rumours: 'The motive
appears at first sight a good one, but the result, as generally happens
in Turkey, was and is disastrous. For the Porte, generally, either
willingly or unwillingly misinformed, telegraphs the first garbled
account, and this becoming known through the officials to the
Mussulman population, tends to poison and excite the minds of the
latter against the unsuspecting Christians, who are, in most cases,
innocent of any treasonable intentions"
z3 This can be illustrated from a whole range of liberal writing and
comment of all shades and colours on foreign afiairs; see for instance
Thc Life onil Lettets of Jowclt, vol' II, p' rr8; Duke of Atgyll, Our
Responsibility for Twhey, 1896; Malcolm MacColl, The Sultan anil
the Powers, r896; and an interesting quotation from J. D' Bourchier

444
 NOTES
it
History of ThcTirues, vol. IV, part I, p. 75. This was of course, the
creed which sustained both Stratford Canning and Cromer.
z4 A. Nazarbek, Thc Voice of the .4rmenian Rcaolul.ionaies . . . , 1895,
P.II.
z5 See for instance the case of the Armenian notable in Erzerum who
was dissuaded 'by advice not unmixed with menace' from serving
on a reform commission set up by the Turks. British Parliamentary
Papers, vol. XCV, 1896, p. 283.
z6 Macler, Aul.out ih l'ArmCnie, p. r4o.
z7 Aspirations et agissenunts, p. 16; G. V. Cardishian, 'The Armenian
Revolutionary Federation', The Armenian Reuiew, vol. II, 1949,
no. 4, p. 65.
z8 Shatirian, 'The founders of the A.R.F. . . .', states that the Dashnaks
learnt from the example of Narodnaya Volya, the Russian populist
and terrorist group.
z9 This point is made by K. S. Papazian, Patriotism Perverteil, 1934, p. zt.
3o Turkey (no. r), Cmd. 5723 (r88g), p. Zr.
3r Turkey (no. S), Cmd. 8or5 (r8q6), p. gq.
3z British Pailiamentary Papers, vol. XCVI, r89o-9r, p. 523, see also
Aspirations et agissetnenls, pp. 3rc-r.
y lbiil., vol. XCVI, 1896, p. 99.
34 Turkey (no. 6), Cmd. 8ro8 (t896), p. 14. The picture which emerges
from the British Blue Books is confirmed by the French reports; see
MinistEre des afiaires etrangdres, Documents iliplomatiques, Affoires
arminiennes, Projets de rCforme d,ans I'empite oltomon t8q-7, 1897.
34a Layard's dispatch, no. rr45 of 16 September 1878; F.O. Z8lz7gg.
35 Turkey (no.S), Cmd. 8or5 (1896), p. 196.
36 l\fassacres were quite easy to organise. Sir Mark Sykes has described
very well horv the thing is done; '. . . it is the work of a mob acting
under the following impulses:
'First degree: Hate Armenians; have been told the Armenians
intend a revolution; have been told so by Armenians; have heard it
hinted that the government wish a massacre; rumour goes that the
Armenians have concealed weapons; they desire to plunder; they
desire to fight; they massacre.
'Second degree: Say twenty-five per cent are loafing about, hear
shots; cry of "Ho, ye Muslims!"; run to see what is the matter,
strike for the faith; the Armenians have risen and they massacre.
'Third degree: the remainder! Fire! Blood! Murder! Killl They
massacre'. (Dar ul-Islam, p. rz6, fn. r.)
37 British Parliamentary Papers, vol. CVI, 1898, p. 274; W. A. and
E. T. A. Wigram, The Crudle of Manhind, rgz2, pp. 247-25.
38 Dispatches from Leishman, Istanbul, nos. 8r7o/r and 8r7ol4.
39 L'Actiotz du Parti S. R. Arm{nien dit Daschnahtzoutioun, t9t4-23.
445
 NOTES

40 Gooch and Temperley, British Documents, vol. X, part I, PP. 45o,

47o; F. Yalyi, Spirituol and. Political Reaolutions in Islam, rgz5,
pp. zo5-63; Aspirolions el agissemetts, PP. gofi.
4r A. Emin, Turhey in the Wotld War, rgz8, pp. zr8-9; R. Nogales,
Fout Years Bewath lhe Crcscent, rgzil and a series of eight articles
on 'The Defence of Van' by O. Mekhitarian, The Atmenian Redew,
Boston, vols. I and U (tg+8-9).
4z See above, pp. 66-7 fi. 65.
43 R. Coke, The Heail of the Mi.ddle East, tg2', p. 22o,
44 He was James Saumarez Mann (r893-r9zo). See An Adminisbator
in thc Mahing, tg2r, pp. 2584r.
45 Miss Bell quotes one oI them, Ja'far al-Askari (Letterc, II, p. S6S)
as follows: 'Complete independence is never given, it is alnrays
ta^ken'. Which, she informed her father, was 'a profound saylng'.
This debased rhetoric represents the limit oI their political wisdom.
46 John Joseph, The Nestorians ond their Muslim Ncighbottts, 196r,
chapter 8.
47 Permanent Mandates Commission, Minutes of the Twenticth Session,
P. r40.
48 League of Nations, Oficial Journal, 1933, p. r,792,
49 Letter dated 3 November r93o to an unnamed correspoudent -
probably Captain H. Rassam - cited in Yussif Malek, Thc Brilish
Betroyal of the Assyria*s, 1935, p, 46.
5o Irague of Nations, Oficial Journal, t933, p. r,792.
5r lbiil. See also Royal Government of lraq, Corespond,etue Relating lo
Assyri.on Setllement, Baghdad, 1933. Documents nos. 29, 3r, 32, 35,
38 and 4o in this collection are particularly useful in setting out the
position of the two parties,
5z lbid., p. r,8o5.
53 Dispatch from the British administrative inspector at Mosul,
Colonel R. S. Stafford, z September, 1933. Summaries of several of
his dispatches are contained in a report from U.S. legation, Baghdad,
89o9.4o16, Assyrians/r47. See also, R. S. Stafford, The Trugeily of
the Assyriars, rg31, chapters rr and tz.
54 Telegram from U.S. minister Knabenshue, Baghdad, z6 August t933,
89o9.4o16 Assyrians/63. When his predecessor asked the British
high commission at the end of r93r what clause in the new Angle
Iraqi treaty enabled the British to intervene should circumstances
require, he was bidden to consider rather what clause of the treaty
prohibited intervention; dispatch from Sloan, Baghdad, 19 December
r93r, 89og.or 1287. lt would seem that the British demanded that
Bakr Sidqi, the army commander who organised the ma^ssacre, sbould
be put on trial, but obviously nothing came of this, much to the
subsequent regtet of Taha al-Hashimi, who reported this in his
446
 NOTES

Diaries (p. rSS), at the time when he and his brother were the victims
of Bakr's cottp d,'ilat in 1936.
55 The number of the murdered given above is the official f,gure which
was kept confrdential at the time; see Hasani, Hidden Secrets,
znd ed., p, z45rL., The fafiud (as this incident was locally known), is
described in Hayyim J. Cohen, 'The Anti-JewishFa*udirr Baghdad,
rg4r', Middle Easl.ern Slud'ies, vol. 3, 196F7, pp. 2-r7.See also
Hasani, ibid., rst ed. Pp. zz3-4, ar^d ibid., zrrd ed., p. 244, where it is
stated that after long discussions on z June, between the mayor, the
regent and other ofrcials, the regent finally issued an order for the
Iraqi army to intervene. See also Hashimi, Diaries, p. 455. Two
referencesto the Jorhud in the literature are rvorth noting. M.
Khadduri in Inifupetdent lrq, r95r, PP. 203-4, writes that 'those
extreme elements who regretted the collapse of the Rashid Ali regime
gave free vent to their feelings by making the Jewish community
in Baghdad the scapegoat for their failure, and pillaged Jewish shops
on z June'. How is it possible, one wonders, to have heard of the
pillage and not of the rnurders? G. de Gaury, who was the British
representative with the regent, gives in Three Kings in Baghdd,
pp. 1283, an evetl more curious account. He states that the mob
'set out to loot the Christian and Jewish shops in the main street,
some of whose owners had the temerity to fly British flags and
banter the defeated Muslims'. This story appears io no other account,
and certainly not in the report of the official committee of enquiry
(published in Hasani, Hidden Secrets, rst ed., pp. zz6'36). We note
again the discreet silence concerning the murders' This author also
complains that 'representations in I-ondon' arising out of the
'disturbances', 'led the good names of the regent and those with him
being blackened'.
56 S. de Cbair, The Golden Cotpet, 1944, p. r18.
57 F. Stark, Eost is West, t945, P. 16z.
58 See E. Kedourie, 'Wavell and Iraq, April-May rg4r', Miildle Eastern
Studies, vol. II, 19654, pp. 373-a8. That the curious behaviour of the
British troops was the result of Wavell's determination that they
should not enter Baghdad excePt at the request of the fraqis is
perhaps implied by Miss Stark's statement (East is West, P. 16o) that
'the British trooPs . . . were anxious not to enter the town unless
invited'. In her later autobiographical work, Dust in the Lion's Paw,
rg66, Miss Stark quotes an entry in her diary for z June r94r which
confirms such an interpretation: 'I see H.E. [Cornwallis] with the
war correspondents in the evening. He surprised me by saying he
thought the town looked friendly'. This was indeed surprising, since
rioting had been going on for the last twenty-four hours. 'I feel it
very much to the contrary', Miss Stark continued, 'and think it is a
447
 NOTES
pity we did not bring the regent in with a good show of troops or
aeroplanes. Always the choice between placating one's enernies or
encouraging one's friends. But the pretence that this is an Iraqi
spontaneous Restoration is just nonsense . . .'. Miss Stark also states
that the oriental secretary, Vyvyan Holt, tried twice to urge the
intervention of British troops at a meeting between Cornwallis and
British generals at the embassy, 'and dare not go a third time, and
one realises why battles can be lost by a sheer inability to get the
data to the people who make the decisions'.
59 C. E. Callwell, Life of Mouile, rg2o, p. 275.
60 C. L. Sulzberger, 'German Preparations in the Middle East', Foreign
Affairs, 1942, p.664. Colonel W. G. Elphinston remarked at the time
on the parallel between Damascus in October r9r8 and Baghdad in
r94r; see his letter h Royal Cenbal Asian Society Journol, vol.
XXVI, part I, t944, p. ro7.
6r But at least Lawrence, though later he chose to disguise the events
in the Seaen Pillars, decided after an interval to call in the British
troops; see above, chapter 3.
6z E. Kedourie, England ond the Middle East, tg16, p. r58.
63 See H. E. Sereni, ho-Abib ha-qdosh (Sacred Spring), r95r, pp. 68-7o,
and Clara Urquhart and Peter Ludwig Brent, Enzo Sercni, A Hero
of Our Timcs, 1967, pp. r56ff. Sereni began organising the Zionist
underground in Baghdad it rg4z.
64 See, for instance, Wilson, Loyallies, p. 3o5.
65 For a similar incident involving the Jews of Constantinople in 1862,
see M. Franco , Hisloite iles israilites ile l'cmpire ottaman, $97, p. 164.
66 Bulletin des Ccolcs d,e l'Alliance isruelite, January r9ro, pp. gl-ro.
67 To cite but one of a multitude of examples: Jews in Muslim countries,
declared Ben-Gurion in the Parliament in 1960, had'lived in a society
that was backward, corrupt, uneducated and lacking in indepen-
dence and self-respect'; the older immigrants from these countries
would never change fundamentally, but the younger ones had to be
imbued with the 'superior moral and intellectual qualities' of those
who created the state of Israel. 'If, heaven forbid, we do not succeed',
he continued, 'there is a danger that the coming generation may
transform fsrael into a Levantine state' , New YothTines,25 October
r9tu.
68 The Hagana sent one of its men to set up a branch in Iraq to organise
military training and set up a clandestine wireless transmitter; see
Munya M. Mardor, Slictly llhgal, 1964, chapters ro and rr. The
author states that Sereni was opposed to these activities.
69 See J. B. Schechtmary Pofulalion Transfers in Asia, 1949, for a
Zionist view of the subject.
448
 NOTES

70 Monrhestpt Guorilian, re March 1952, reporting a statement by M.

Shertok.
7r Obscner, rr September 1949.
7z A list of these outrages is set out in Hasani, Iraqi Cabinets, vol.
VIII, p. r9z. The author also states (p. tSt) that prior to these
incidents it was estimated that tro more than eight thousand Jews
would leave the country. The Iraqi government brought to trial a
number of young Jews who were accused of throwing these bombs.
But the evidence adduced is not always convincing, and it must
remain an open question whether Zionists were responsible for some
or all of the incidents which stretch over a period from April r95o
to June r95r. From some remarks made by the presiding judge, a
chief purpose of their trial seems to have been to prove that it was the
Jews of Iraq rvho had brought all their sufierings on themselves, and
the Iraq government was in no way to blame.
73 'Nobody in Palestine believes that the Patria, which blew up in
Haifa harbour in r94o loaded with illegal immigrants who were
being taken by the British to Mauritius, was destroyed by its own
p.nsengers or by "refugees resolved to bring their hopeless odyssey
to an end". The blowing up of the ship, in which some z5o Jews died,
was a political action in a "cold war".' R, Weltsch, in Commenlory,
February tg52, p.r98. The 'Lavon Affair' is also relevant in this
connection.
74 Quoted in Midcos, Miror, vol. II, no. 44, 17 March r95r.
75 The attitude of the Iraqi Sovernment then and since is exemplifed
by the answer of the prime minister to a suggestion made in 1953 that
Palestinian refugees might be given loans out of frozen Jewish funds'
He stated in Parliament that the matter had been discussed in the
council of ministers and that it was found that the law relating to
frozen properties did not allow loans to be made; and furthermore,
such loans might prejudice the interests of the Palestitiansi al'Sha'b,
Baghdad, 18 May 1953.
76 Article VI of the constitution prohibited legal discrimination against
any group of Iraqis, and para. 3 of Article IX prohibited the general
confiscation of movable or real property. These anti-Jewish laws
seem to have stimulated the appetite of the rulers of Iraq. In 1954,
Nuri, once again prime minister, issued a decree whereby Iragis
convicted of Communism could be deprived oI their nationality and
deported abroad; on that occasion Salih Jabr, who was then in
opposition, publicly stated that such a measure w€ul rePugnant to
the constitutionl al-Sha'b, Baghdad, zr August 1954. And, of course,
tlae coup d'Ctat of 14 July 1958 inaugurated a whole series of proscrip-
tions and confrscations, the first victims of which were the leading
politicians and officials of the monarchy.
449
 NOTES
7Z 487 H.C. Deb. 55, written answer by Mr Younger, z3 April r95r.
78 Permanent Mandates Commission, Minutes of the Twantiath Scssion,
P.I35,
29 'The prime minister fof Egypt] recognised the extent of Jewish
economic power, since it controlled the economic systems of many
countries, including the U.S., England, France, Egypt itself, and
perhaps even Sweden'. 'The King [of Egypt] then struck a more
personal note. King Gustaf of Sweden, he said, was regarded in
Egypt as being strongly pro-Jewish. And was he not also a Free-
manon?' F. Bernadotte, To Jerusahm, pp. zV arrd. 7o; the Iraqi
prosecutor in the Zionist trial referred to above quoted from
the protocols of the Elders of Zion (attributing them to Herzl) to
prove the immensity of the Zionist peril; Abd al-Jabbar Fahmi,
Sumum al-af'o al-sihyawni (The Poisons of the Zionist Snake),
Baghdad, ry52,p.529; this work contains a transcript of the various
trials of Iraqi Zionists and Israeli agents held in Baghdad. See S. G.
Haim 'Arabic Antisemitic Literature', Jewish Social, Studias, 1955,
and below, pp.334-2.
8o Wilson, Mesopotamia rgr7-rgzo, p. 335.
8r R. Montagne, 'Modern Nations and Islam', Foreign Affaits, luly
1952, P. 592.

r r Religion and Politics

r A. Bertram and J. W. A. Young, Repoil ol the Commission Ap-
pointed by the Goaernmcnt of Palestine lo itquire anil report upon
ceilain controaersies between the Orthoilor Paliarchale of Jerusalem
and, the Arab Oilhoilor Community, 19z6, pp. 574.
z W. K. Hancock, Country anil Calling, 1954, p. r59.
3 See al-Manar, vol. XIX, 1916, pp. r85fi., for a brief biographical
account.
4 Ral,ha ona ya dunya (S:ucla I am, O World), selected and edited by
his daughter Hala Sakakini, Jerusalem, 1955. Sakakini was born in
Jerusalem in 1878 and died a refugee in Cairo in 1953.
5 Marun Abbud, Saqar Lubnaz (The Eagle of the Lobanon), Beirut
r95o, p. 38, quoting a contemporary chronicle; F. J. Bliss, Tla
Rel,igions of Mod,ern Syrio and, Palestine , tgt2, p. 326.
6 See 'Public Statement of Asaad Shidiak', Missionory Heralil,Boston,
vol. 23, r9z7.
7 lbid., pp. 136, r7o-r, and r77 and 37o.
8 Ahmad Faris al-Shidiaq (r8o4-87\, al-Sq 'ala al-sq fi. ma huwa
ol-Faia4, or to use the translation provided on the litle page, La
oie et les aoefllures ilc Fariaq, dation de ses uoyages aaec scs
obseruations ctitirltzs sur les Arubes et sur les aubes peuples, Paris, 1855
(Cairo ed. r9r9), p. ro3.

450
 NOTES

9 Seehis collection of articles, al- Dutar (The Pearls), ed. by his brother,
'Awr:i Ishaq, r9o9, pp. r89 and 329.
ro Bliss, Religiotx oJ llloilcrn Syrio anil Palcsline, who states (p. rlz)
that the Maronite hierarchy was then being 'threatened by the
activity of the societies of Freemasons and other popular benevolent
associations which have sprung up in the Lcbanon since the beginning
of the century in consequence of the liberal ideas brought back from
the New World oI returned emigrants'. In the jourr:al al-Mashtiq
which he edited, the Jesuit Louis Cheikho ran a series of articles in
rgro and rgrr in which he virulently attacked freemasonry; see in
particular vol. r4 (r9rr) for his discussion of freemasonry in Egypt,
Syria and Turkey; the articles were collected and published in a
book, al-Sirr al-maqun fi shi'at al-mdsun (Th.e Well-Protected Secret
Concerning the Sect of the Masons), r9rr.
rr I have not been able to see a copy ol al-Muhalafa al-thulathiyya (Tbe
Triple Alliance), which *'as published in New York in r9o3 and which
is now very rare. There are summaries of its theme and quotations
from its text in various works devoted to Rayhnai; see in particular
Marun Abbud, Amin al-Rayhani, Cairo, 1955, and Muhammad Ali
Mtsa, Amin al-Rayhani, Beirut, 196r.
tz Al-Mahari ua'l-hahin (The Muleteer and The Priest), Beirut, rgz9.
The 6.rst edition was published in New York in r9o4.
r3 Letter to Na um Labaki, r9or, in Albert Rayhani (ed.), Rasa'il
Atnin Al-Rayhani r8g6-t94o (Letters of Amin al-Rahani, 1896-
r94o), Beirut, 1959, p. 26.
14 He was excommunicated by his bishop before the first world war;
see Amin al-Rayhani, Qalb Lubnan (The Heart of the Lebanon),
Beirut (znd ed.), 1958, p. 84. The columns of. al-Moshriq contain
over the years bitter and violent denunciations by its editor, Louis
Cheikho, of one whom he considered a traitor to his community and
infected with what Cheikho called 'anti-religious rabies' (ol-hald
al-ladini)i see al-Mashtitl, tgz4, pp. 478-9.
15 Irtter to the poet Bahara al-Khuri, dated probably rgro; Rasa'il,
pp. 167-8.
16 Rasa'il, p. 2gS,letter to Marun Abbud, November 1926.
r7 He tells us that a brief period of teaching at the Jesuit College of St
Joseph at Beirut was terminated at the instance of the papal nuncio
'because I am a danger to the Maronite community and the Catholic
religion', See his work, Ruuwail al-nahila al-hod,itha (Pioneers of thc
Modern Renaissance), Beirut, t952, P. t7?.
r8 Marun Abbud, al-Nabi Muhammail, Sidon 1353/1934 the quotations
above are from pp. z3-4.
19 Passage quoted in Musa, Amin ol-Royhoni, pp. 7z-3.
zo A sdqiya or water-lvheel'mainly consists of a vertical rvheel, which
45r
 NOTES
raises the water in earthen pots attached to cords, and formiog a
continuous series; a second vertical wheel fixed to the same axis, with
cogs; and a large horizontal, cogged wheel, which, being turned by a
pair of cows or bulls, or by a single beast, puts in motion the two
former wheels and the pots. The construction of this machine',
observes E. W. Lane, 'is of a very rude kind; and its motion produces
a disagreeable creakitrg sound'. The Mannets ottd Customs ol the
Mod,ern Egyptians (Everyman ed.), p. 336.
2r See the preface to vol. I of his Muluh al-ar& (The Kings of the
Arabs), Beirut ry24, pp.6fr..
zz Quotations in Musa, Amin al-Rayhani, p, 77.
z3 Rayhani's political testament is extensively cited in Marun Abbud,
Amin ol-Rayhani, p. 4r.
z4 Raso'il . . ., p. 285.
25 This kind of rebellion wa,s even rarer among Arabic-spea.king Jewish
communities. There is one well-known case, that of the Baghdadi
Jew Nissim Susa who became a convert to Islam in the r93os under
the name of Ahmad Nasim Susa. He published an apologia, Fi
tariqi ila'l-Islam (Ot My Way to Islam) (z vols.), Cairo and Najaf,
1936-8. This graduate from an American university presents many
similarities to the Maronite and Orthodox rebels in his revulsion
from the religion and traditions of his community and in his fervid
desire to identify with and be accepted by the Muslim majority;
the only convincing way for a Jew to prove his solidarity with the
Arabs in the struggle against Zionism, he says (vol. I, p. 163), is
'by deserting Judaism, including the religion, the customs, the
traditions, aud the fellow-feeling'; in vol II (p. r83) he reprints an
article which he had contributed to a newspaper in which he had
argued that non-Muslim civil servants should not be allowed leave
of absence on the occasion oI their religious feasts.
z6 T. E. Dowling, The Oilhoilor Grceh Patriatchate of Jerusalem (3rd.
ed.), r9r3, p. 5o.
27 Bertramand Young, Repotl, p. 338, Articles rr and rz of the Brother-
hood Regulations.
z8 Bliss, Religions of Moilarn Syia and Palestinc, pp. 55 and 58.
z9 R. Janin, The Separultil Eostern Churches, 1933, pp, 8o-r.
3o Bertram and Young, Report, p. 25,
3r Uspensky's autobiography was published posthumously, Kniga
Bytja Mojego (The Book of my Life) (P. A. Syrku, ed., Academia
Scientiarum Impierialis, for the Imperial Orthodox Palestine
Society, 4 vols, St Petersburg, 18g+-6). I am indebted to Dr Andrew
Mango for these bibliographical details.
3z The pamphlet from which this passage is quoted, Lamha taihhiyya fi
ahhawiyyat al-qafu al-muqaddas ol-yunaniyya (Historical Outline of

452
 NOTES
the Greek Brotherhood of the Holy Sepulchre), was published in a
first edition in 1893, the pseudonymous author being stated to be
al-Shaikh Abd al-Ahad al-Shafi, the rvork being printed at the press
of Sam the son of Noah. Its reading was forbidden to the faithful;
see Sh[rada Khuri and Nicholas Khuri, Khulosot larihh hanisat
IJrchalim ol-arlhuilhahsiyya (Brief. History of the Orthodox Church
of Jerusalem), Jerusalem, 1925, PP. 454. It was reprinted in r9o9
by Girgis Abdulla al-Isa al-Yafi. The British Museum Catologue oJ
Arabic Prinleil Boohs attributes the work to Salim Mikha'il Shahhada.
If correct, the attribution would be highly significant, since Salim
Mikha'il Shahhadn (r848-r9o7) was in fact the dragoman of the
Russian consulate in Beirut (see Martin Hartmann, The Atabic Press
of Egypt, 1899, p. 38, and the relcvant entry in Sarkis, Mu'jam . . .),
and the pamphlet makes extensive use of Russian works' The passage
translated above occurs in what seems an extendcd quotation (pp. Zz
-8) from Uspensky's autobiography. It is also quoted in P. Deplaissan
'La Politique russe dans la Palestine et la Syrie', Echos il'Orient, vol.
IV (r9or), p. zg7. Isma'il Kemal Bey who was governor of Beirut in
r89r-2 states that Shahhada was involved in anti-Greek agitation on
behalf of the Russians in the afiair of the See of Antioch; see
Somerville Story (ed.), The lllemoirs of Isrnail, Kemal Bey, pp. 196-7.
33 Bertram and Young, Report, PP. 138-9; A. Fortescue, The Orthodox
Eastern Church, tgo?, p.288; Khuri, Brief History, pp. zo5ff' See
a long dispatch by the British Consul in Jerusalem, no. r of 7
January 1887 (F.O. r95/r58r), describing the 'chronic struggle
between Greeks and Russians.'
34 Bertram and Young, Report, p. 2r5; Bliss, Religions oJ Modern Syria
and Palesline, gives an account oI the incident' Alphonse d'Alonzo,
La Russie en Palestine, tgor, makes the point (p. r7) that though
Russia had only negligible interests in Damascus it yet established
at the time a consulate there. He also mentions (p' +S fn. r) that the
Russians made an annual allowance to the Arabic-speaking bishops
of the patriarchate of Antioch. The publisher of the second edition
ol th.e Lamho stated in an Afterword (p. rfS) that the pamphlet
was instrumental in wakening the native communities in the see of
Antioch to the oppression of the Greeks. This again throws an
interesting light on the origin and character of this pamphlet. See
a memorandum on Russian influence in the Greek Orthodox
community enclosed with dispatch from the British Embassy,
Constantinople, z7 April 1899 in F.O. 4zglrg8, no. 76; also a
dispatch of 9 November (F.O. 424lrgg, no. 53) describing Ottoman
acquiescence in Russian dominance in the see of Antioch.
35 See Echos il'Orient, vol. III, (r899-r9oo), pp. r77-t8t; IV (r9or),
p. z8r; VIII (r9o5), pp. 160-2, and XVI (rSrg), p.30; J.Richter,
453
 NOTES
A History of Prctasl,antMissions in the Neu Eost, rgro, p. SZi
Shukri Khalil Swaidan, Taihh al-jam'iyya al-infieratoriyya al-
arthudhahsiyya al-filastittiyya (History of Imperi,al Orthodox
Palestine Society), Boston r9re.
36 Mikha'il Nu'ayma, Sd'ul: qissat'umr t889-r959 (Seventy Years:
the Story of a Life 1889-1959), vol. I, Beirut, rg5g, pp,?4-5.
37 lbiil., p. r42.
38 Sakakini, 26, entry of r5 May r9o8.
39 lbid.,38, entry of zr September r9o8.
4o lbid,., r8o, entry of 3o April r9r9.
4r lbid., t?o, enfuy of zr March r9o9.
4z A. Bertram and C. Lttke, Report oJ thc Commission appointcd by the
Goacrt*nent of Palesline to itt4uire inlo tha Affairs of the Oilhoilo,
Palriarchale of Jcrusalem, r9zr, appendix C; Echos il'Odenl, vol.
XII (r9o9), pp. r12, 242-3; vol. XIII (r9ro), p. 42; vol. XIV (r9lr),
p.239, The disturbances of r9o8-9 are discussed extensively in
Khuri, Brief History, and in dispatches and telegrams from the
British consul in Jerusalem, E. C. Blech; dispatch no. 6r of ro
November r9o8 and telegram of 3r December, F.O. r95lzz87; and
dispatch no. r of r January r9o9, and no. 13 of z6 February r9o9,
F.O. rg5lz3zr. Blech's conclusion on the disturbances as expressed
in his telegram of 3r December r9o8 seems sensible: 'Though native
party is usually considered as in Russian interest I think present
situation is not due to Russian instigation'. See also dispatch by
U.S. consul T. R. Wallace, r5 March r9o9, for a graphic description
of a riot which took place following the murder - probably for
robbery - of two Arabic-speaking Orthodox on z4 February. Greek
shops were attacked, another native Orthodox being killed in the
disturbance. At the funeral, bloody sheets were displayed and a
Muslim orator pledged the support of his community in the struggle
against the Greeks.
43 This mixed council, set up in rgrr did not function at all. The
patriarchate wiut reluctant to cooperate and the outbreak of war
provided an opportunity to suspend its sittings. After the war it
was not revived; but the irregular appointment of a metropolitan for
Nazareth it rgzz led to the formation of the Arabic Orthodox
Congress at Haifa which renewed the demand for such a council.
'The Haifa Congress Party', wrote Bertram and Young, Report,
p. ro2, 'undoubtedly represents the majority of the active members
oI the community', and it is interesting to note that the mixed
council this party demanded was to be two-thirds lay in member-
ship and only one-third ecclesiastical; further, in all matters political,
administrative and economic, the patriarch was not to speak on
behalf of the community, except with the express permission of the
454
 NOTES
mixed council. He was not to appear in public for the purpose,
unless accompanied by two members of the mixed council; Bertram
and Young, p. 224. The temper of the Congress Party may be
gathered from a comment of the newspaper Filaslin of 16 October
rg3r. Filastin, discussing the election of a new patriarch, spoke of
three mandates oppressing Palestine, the English, the Zionist and
the Greek, 'which is not the lightest'. The patriarchate, wrote
Filastin, was siding with the Zionists against the Arabs, and the
cause of the Palestinian Orthodox ought to be the cause of all the
Arabs, Muslim as well as Christian; Echos il'Orient, vol. XXXI
(1932), p. 9r.
44 Sakakini, 26, entry of 15 May r9o8.
45 Sakakini, 53, entry of 3 January r9rz.
46 lbiil.,34, entry of z5 JuIy r9o8.
47 lbid.,39, entry of 3o September r9o8.
48 Khuri, Brief History, p. 247.
49 lbid., pp. 54-5.
5o Sakakini,37.
5r lbid.,57-8, entry of rz January r9r4. The year before he had pub-
lished a pamphlet, al-Nahila al-arlhudhahsiyya fi Filastin (The
Orthodox Renaissance in Palestine), full of defiance and rhetoric.
5z Sakakini, t47, entry of z9 April r9r8.
g lbiil.,89, entry of z6 March r9r5.
54 lbiil., r5r, entry of z8 May r9r8.
55 Sakakini, rog and r17, entries of zr December and,z4 December r9r7.
56 Elderly, presumably, because a young man in a Muslim society
would not bave been rich enough to afford such a choice piece.
57 Bashir Ka'dan and Shafiq Shalati, Ha'ula al-sahyuniyyuz (Those
Zionists), Damascus, 1946, pP. 15, z7 and 7o.
58 Ibrahim lzzat, Kuntu fi, Isra'il (I was in Israel), Beirut, r957,pp.
4z-3. This obsession with Jewesses may also be noticed in Anwar
al-Sadat, Rcuolt On the Nile, 1957, pp. r83. The immodesty of the
Zionist women colonists and the temptations of Tel-Aviv in this
respect have of course been long-standing beliels in Palestine and
the neighbouring countries.
S9 Khitfr maftuh ila al-bimbashi ol-sabiq lomal Abd al-Nasir (Open
letter to ex-Colonel Jamal Abd al-Nasir) n.p., n.d., p. 39.
6o Muhammad al-Ghazali, Al-ta'asub ua ol-tasom,uh boyn ol-masihiyya
uo al-islam (Fanaticism and Tolerance between Christianity and
Islam), Cairo, n.d. (after r95z), pp. 164-5. The book seems a reply
to J, Tagher's Coptes et musubnans.
6r Traran Stoianovich, 'The Conquering Balkan Orthodox Merchant',
Jourualof Economic History, vol. XX (196o), p. 245, quoting from and
455
 NOTES
summarising Memoires ilu Prince Nicholos Soutzo Grand Logoth)le
ilc Molihaie r7gS-r87r, t8gg.
6z M. Franco, .Essai sur l'hisloire des Israelit)es de l'cmpirc ottoman,
pp. r58, 16o-r, zzo-32; Narcisse Leven, Cinquontc dns il'hisloire,
vol. I, rgrt, pp. 2334, 388-zgz Jacob M. Landau, Ha-Ychud,im
bc-tnisrayyim be-mealh ha-tcsho' asra (The Jews in Nineteenth-century
Egypt), 1967, pp. r6off.
63 Abraham Mitrie Rihbany, A Far Joutncy, rgr4, pp. 8r-2.
64 al-Mashri(, vol. XX, (rgze), pp. r,o6r-2. The book reviewed was
Jean Drault's Une cause cllcbrc: l'ossassinat in P. Thomas et k
Talmud, r9zz. Cheikho's polemical style is violently outspoken and
al-Mashiq under his editorship contains many diatribes against
Judaism and the Jews in the traditional theological style.
65 Marun Abbud, Naqd,il'&ir (Criticisms of a Passer-by), 1959, p. 43.
66 Unless, of course, it was influenced by tbe Marcionite heresy.
67 See S. G. Haim, 'Arabic Anti-Semitic Literature'. loc. cit.
68 Correspondence between Crane and Antonius, and reports of meetings
with Muslim notablities in Antonius Papers.
69 Sakakini, 64-6, entry of z3 February tgr4.
7o lbi.il., rZ8, entry of 17 April r9r9.
7t lbid.,33r, entry of 3o October r94o.
7z Ft'ad, Ammun, it Dirasat 'an huhumal Lubnan (Studies in Lebanese
Government), Beirut, 1956, p. 3oz. Franklin's alleged speech is
discussed in the Fronhlin Institute Nazos, vol. 13 (1938), no. 4,
pp. r and z, cited it Commentary, vol. zz (1956), p. S3Z.
73 Sakakini, 39-453, entries of 8 and z3 October r9o8.
74 lbid.,46-8, entries of rz, 14 and zr November r9o8,
75 lbid.,8o, entry of 3 November rgt4.
?6 lbid., 166, entry of z6 January r9r9.
77 lbid.,277.
78 Anlonius Papers, Israel State Archives,
79 The articles were published in the Egyptian periodical al-Farh
and later brought together in a pamphlet from which extensive
extracts are given in the appendix.
8o Israel State Archives, Record Group 65, f.le no. 2646.
8r Sakakini, 7r, entry of 14 March r9r4.
8z lbid., 67, en1.ry of z5 Februaty tgr4.
83 lbid.,99-roo, entry of r8 December r9r7.
84 Khalil al-Sakakini, Filastin ba'd al-harb al-hubra (Palestine After
the War), Jerusalem, ry25, pp. z4-5. One form which this
Christian Orthodox identification with Arabism took was what may
be called Ghassanism, i.e. the notion that the Arabic-speaking
Orthodox were really the descendants of the Arab tribe of banu
Ghassan who had adopted Christianity in pre-Islamic times and
456
 NOTES

become the clients of Byzantium. See for instance the transparently

autobiographical novel by Najib Nassar, an Orthodox from Haifa
who was one of the earliest aod most uncompromisiag opponeats of
Zionism, Riuayal Miflih alGhassani au safho min safahat al-horb
al:alomiyya (The Story of Miflih the Ghassanid, or a Page from
World War History), Haifa, n.d. Miflih, be it noted, is a name used
by Beduins, hardty ever by townspeople and certainly not by
Christians. Marun Abbud recounts a conversation with Najib Nassar
in which he tells Nassar: 'May God ProsPer baau Ghassan. They
stood for Arabism and for its sake fought the imperialist Romans'
May God save them from these other [imperialists - i.e. the Zionists]"
Naqddt'abir, p. 43.
85 Sakakini, 165-7, entries of z6 and 29 January r9r9'
86 lbid., r94, entry of z3 June r9zo. In spite of having publicly given
this reason for his resignation, he was allowed to rejoin the Depart-
ment after Samuel left, in 1926.
87 lbid., z96, entry of. 4 May ry37.
88 lbid.,66, entry of z5 February r9r4.
89 Ishaq Musa al-Husaini in his foreword to Sakakini's Diary.
go lbid., 264-5, entry of 6 December t934.
9r See the comment of H, E. Bowman, sometime director of Education
in Palestine. Writing of the Arabic-speaking schools (which were
supported and administered by the government) he stated that the
Arab leaders in Palestine 'did their utmost to make the schools the
nucleus of nationalist inspiration. Their aim was to embarrass the
government by giving the schools a nuisance value; and, at the same
time, to inculcate in the Arab youth a passionate nationalism which
would show itself in overt acts whenever an opportunity served'.
Middle Easl Wirdou, p.3rr. The same, of course, holds tnre,
t*utalis ttutotdis, of the Zionist schools.

rz The Chatham House Version

r Reporl of the Prouisiotal Committec appointcd to prcpare a Cottstilu-
lion anil selcct thc otigirul mcnfrets of the Bitish Btanch of hc lrtsli-
tule of Intctnational Affaits, r92o, pP. z and to-t.
z Royal Institute of International Affairs, Annual Report, r939-4o,
p. 8.
3 Annuol Reporl, 1942-3, PP. 3-5.
4 Ibiil., pp. z4-5.
5 Ibid.,9. 32.
6 Ibiil., p. +2.
7 A Stuily of Histoty, vol. to, 1954, P. r39.
8 A. J. Toynbee, 'A Study of History: What I am trying to do', in
457
 NOTES
Intenotional Affaits, 1955, reprinted in M. F. Ashley Montagu (ed.),
Toynbce anil Hislory, Boston, 1956, p. 3. See also A Stuily of History,
vol. ro, p. z4t,
9 A Sluily of Hislory, vol. ro, p. 166.
to lbiil,, vol. 12, p. r39.
rr lbid., pp. 77-8.
rz Vol. 4,99. z8r-z; vol. 9, p. 43t n.2i vol. ro, p. 136.
13 A Stuily of History, vol, 4, pp. 257-8.
14 lbiil., vol. 3, p. z16.
rS lbid,, vol. 3, p. r9r and vol. ro, p. r4o.
t6 lbiil,, vol.4, p. rz8.
17 lbiil., vol. 5, p. zoo.
rB lbid., vol.9, p. 334.
rg lbiil., vol. rz, p. 3o9 n. 2.
z,o IUd,, vol. 7, p. 7ro.
zr W. Den Boer, 'Toynbee and Classical History: Historiography and
Myth', in M. F. Ashley Montagu, Toynbee anil Hislory, pp.2J2,242.
zz A Stuily of Histary, vol. 8, p. 45r.
z3 lbid,., vol. 5, p. r74.
z4 lbiil., vol. 5, p. r75.
z5 lbid., vol.5, pp. 173-4.
z6 lbid,, vol, tz, p. 6t7.
27 lbid., vol.5, p.588.
28 lbid, vol.4, pp.566, 548.
zg lb'i.il,, vol 8, p. z9r.
3o lbiil., vol. 6, p. 196; and see in general pp, r78-zr3 for a discussion
of the saviour with the sword.
3r lbiil., vol. t, p. 474; vol, ?, p. 56i vol. z, p, r83; vol. r,2, p, 2o4 n, t.
3z lbiil,, vol.8, p. r9r.
$ Ibiil,, vol. 3, pp. 47,28,
34 lbiil,, vol. ro, p. r43.
35 lbiil., vol. 3, p. 8o.
36 See the dictionaries of Lane, Kazimirski and Dozy; elso H. A. R.
Gibb and If. Bowen, Islomic Socicty and the Wcst, vol, t, part 2,
pp.252-3.
37 The misunderstanding of the word ra'iych - as Toynbee writes it -
illustrates one minor but interesting aspect of the Chatham House
Version. Chatham House publications during Toynbee's tenure ars
marked by a finicky quest for exactitude in using and in transliterat-
ing Arabic words. Misplaced as it is, this desire for exactitude might
have been excusable had there been competence enough to achieve
accuracy. As it is, mistakes abound, the result of ignorance or half-
knowledge. Thus Toynbee insists on giving us the modern
(Stxdy, vol. 2, p. 54 n. 3),
word for Philistia and writes [rn-{,i
458
 NOTES
lvhcn as everyone knows Palestine in Arabic is spellecl Ul.<U
Or he actually coins a *'ord rvhich he allcgcs to cxist in Arabic; he
states (Slrrdl', vol. rz, p. 59) that in Arabic there is a word for self-
centredness in the plural, the word nahniyah; this rvord is in fact
untnou'n to the dictionaries. Ibn Khaldun's lt'Iuqadilima becomes
Illuqad.damiit (Stttdy, vol. 4, p. r3r n. 3) ; Karbald, becomes Qarbald
(Strdy, r'ol. 9, p. roo) ; Ali Abd ar-Riziq becomes Ali Abdur-Razzaq;
the Egyptian torvn of Asir-rt becomes As-Siyit; the Berber glahir
bccomes the ddhir; the Baghdad suburb of l(azimayn is described
as 'the Shi'i Holy Cities of I(arbali and Najaf, on the right bank of
the Euphrates' (Suruey of Inlernalional Affairs, vol. t, The Islamic
lVorld, .. ., pp. 16, 88, rz7 and 333.); the Syrian family of Bayhum
bccomes Baytrum; Nasib al-Bakri becomes Nagib; ltrananu becomes
Hanarru, the title of a publication is given as aJ-Lubnak ba'd, el harb
(S. H. Longrigg, Syria anil Lebanon wnd,er Fyench Manilale, pp. 2o5,
2r7, t2r and 382); etc.
38 A Sludy of History, vol. 3, pp. 455-7.
39 lbid., p.456.
4o lbid,., vol. tz, pp. 90, 458-9.
4r lbid., vol. r, pp.348,353, 37o-r; vol.9, p. r59.
42 lbid., vol. 4, pp. rrz-3.
$ Ibid., vol. r, pp. 398, 396; vol.9, pp. 95-6.
44 See his Nationality ond lhe I4zaz, published in r9r5, rvhere he states
(p. +rr) that "rvc have identified ourselves' rvith the principle 'that
peace can only be securecl by giving free play to every manifestation
of the spirit of Nationality'.
45 A. J. Toynbee, The Weslern Question in. Grcece anil Tu.rhey, rgzz,
PP.I-2.
46 A Study of History, r'ol. 3, pp. r5r-2.
47 ln T'he Islanric lVoild sirce the Peate Seltlemenl, published it rgzT
Toynbee had still not u'orked out the larv whereby the penetration
of one society by the ideas of another is the result of sickness in the
latter, for helvrites there (p. r): 'Possibly this violence u'as a passing
phase - an aftermath of the General War - but for the time being it
gave the contact betrveen civilisations a distinctly hostile turn and
tended to divide mankind into tlvo camps: the camp in rvhich
western civilisation was indigenous and was therefore taken for
granted, and the camp in rvhich it lvas an intrusive ancl therefore
subversive force.'
48 A Study of History, vol. 3, pp. r5r, r53.
49 lbid., pp. r5o-r.
5o lbid., vol. rz, pp. 154-6.
5r Another illustration of the shakiness of Toynbeefs laws occurs in
volume z rvhere he states (p. rz:): 'fn the writer's belief, the recent
459
 NOTES
transfer of the Chinese capital from Peking to Nanking is likely to
be perpetuated, and this just because, so far from invalidating our
"law", it actually illustrates and confirms it'. 'Ihe law in questiou
asserts that marches develop a political power which gives them a
predominance over the interior; Nanking being a march, the
prophecy follows.
5z A Stuily of Histary, vol. 5, pp. 493-4.
g lbid., vol. 8, pp, 5zy3o.
54 The Worlil, and the Wast, 1953, pp. 2-3.
55 The Western Question, p. 4o.
56 lbid., pp. 58-6r.
57 A Study oJ History, vol. r, pp. 33, 36 n.r, 16r-3.
58 lbid., p. zto.
59 lbid., vol. z, pp. G7,
tu lbid., p. t2Z.
6t lbid., vol. 4, p. 239.
6z lbid., vol. 5, p. 4o.
63 lbid., vol. rz, p. 278 ard vol. 8, pp. 148-9.
64 lbid., vol, tz, p. 62Z.
65 lbid., pp. 5e6-2.
66 The Islamic World since the Peace Settlemenl, P. 35o.
67 A Stuily of History, vol. z, p. 55 n. 4; see also ibid., pp. to, t4,24.
68 In 1954 he was still declaring: 'The sin o{ which I feel that we
weeterners need to repent is Pharisaisrn' (in a letter to Thc Times
Lilerary Supplement, reprinted ir Counsels of Hopet The Toynbee-
Jenolil, Controaersy, 1954, p.38). In 196r he was praising 'Pharisaic-
Christian pacifism' and stating that the 'Pharisees' pacifism saved
Judaism from perishing with the Zealots' (A Sluily oJ History, vol.
rz, p. 5o5).
69 A Sluily of History, vol. r, p. zt4;vol.5, p. r8z; vol. 7, pp. 474n.r,
438-9; vol. 12, pp.54r-2.
7o lbiil., vol. 8, p. 4o5.
7r See A. J. Toynbee, Acquaintonacs, t967, p.zo3.
7z F.O. 3711668, frle 577148o.
Z3 'Memorandum on the Exclusion of Palestine from the Area Assigned
for Arab fndependence by the McMahon-Husein Correspondence
of 1915-16' by W. J. Childs, z4 October r93o, pP, 53-4; F.O. 37rl
14495, flle 469r | 427 165.
74 The WestentQueslion. . ., pp. 48-9.
75 See his article 'The Present Situation in Palestine', in Internationol
Affaits (The Chatham House Quarterly), vol. to, no. r, January
r93r, pp. 45, 67-8.See also an article of his in The New Refutblio
of 6 September 1922, where he states, (p. 4o) that Palestine was
460
 NOTES
included in the British promise to Husayn; he reiterates this belief
as late a.s 1967; see Acquaintonces, p. 196.
76 'IIre Present Situation in Palestine', Intsnational Affoirs, PP. 4o-r.
77 A Study of History, vol. 8, p. 257. Another Arab Nationalist assertion
which Toynbee took for granted is that Syria 'in the wider popular
meaning of the term' had constituted at some time - when has
never been made clear - a political unit which the Allies cruelly
carved up after r9r8. See Suruey for rgz8, P. 322, arrd Suntey for
t93o, pP. 222-3.
78'Britain and the Arabs: the Need for a New Start', I*ternational
Affabs, vol.4o, no.4, October 1964, P.639.
79 Encountcr, October t967, P.68. The statement occurs in an oPen
letter from Toynbee to J. L. Talmon on the subject of the Six Day
War of June 1967.
8o Suney for r93o, p. 169.
8r Suraey for 1934, pp. rrcr.
8z A Jourwy to Chino or Thitgs Which Arc Seen, t93r, PP. rrr-5.
83 The Islamic Woild since the Peue Seltlcnrcnt, P. 5ro.
84 Suruey for 1934, p, 2rr.
85 A Study of History, vol. 8, p. 2gt n. r.
86 'Great Britain and France in the East', The Contemporary Reaiew,
January 1922, p. 31.
87 A Joumey to China, p. rrr.
88 The Islamic WorM sinre the Peace Settlcment, p. zo.
89 Suntey for 1928, p. 2t2,
go Suruey for 1928, p. 228; Suntey for r93o, P. 3ro'
9r The Westcrn Question, p. r8r.
gz Swaey for 1936, pp. 78Hr.
93 Great Britain anil Egypt, t952, p. 94.
94 lbiil., p. 26 n.r.
95 Sumey for 1934, p. ror.
96 The World in Morch t939, PP. t27, t34-5.
97 Suntey {or 1938, vol. r, p. 425.
98 Inilepenilent lra4 (znd ed.), 196o (rst ed., r95l), p. 3o.
99 lbid., chs. 3,4.
roo The Wwlil in March t939, P. r33 n. 4.
ror Syria and Lebanon thder Frcruh Mandate, PP' 3, 5-6.
toz lbiil., pp. 84, go, g4i Suney for t937, vol. r, p. 552.
ro3 Syria anil Lebaron IJnfur French Madlale, pp. ro7-8, 367.
to4 lbiil., pp. r16-7.
ro5 Interuationol Affabs, vol. 15, 1936, PP. 474-5. Gibb was closely
connected with Chatham House. As early as 1932-3 he and Harold
Bowen were invited to examine the 'Reaction of the Islamic World
to the Impact of Western Civilisation'. In 1943-4 he became a
46t
 NOTES
member of the editorial committee oL lntetnationol Alfairs, and the
following year a nrember of the Council of Chatham flouse and vice-
chairmau of the publications committee.
ro,6 Syria and Lebonon Unil,et Frcnch Mand,ate , pp. r8z-3.
ro7 lxtenational AfJairs, vol. ro, t93t, pp. 63-4.
ro6 'Introduction', in R. N. Frye (ed.l, The Near Eost ond the Grcal
Pouers, r95r, pp. 9-ro.
ro9 'The Case for the Arabs', The Spcctator, z5 November 1938, p.gtz,
a review of G, Antonius, The Arub Awahedrq, 1938.
rro 'The Case for the Arabs'.
rtt Syria and, Lcba*on Unclq Frcnch Manil,al.e, pp. 54, 59-6o. It is of
interest to read a review of C. Weizmarn's Trial ond Errot, signed
S.H.L., which appeared in The Arab Woild, October 1949, p. 17; 'It
would obviously be over-optimistic or merely foolish', declares the
reviewer, 'to expect more than a certain degree of "loyalty" to
Great Britain, its policies and its people from immigrant foreigners
of alien blood, background and ambitions such rrs are the foreign
Jews to whom H,M.G. so readily accords the privilege of British
nationality.'
rrz Another account of the origin of the Balfour Declaration appears in
A Stuily of Hislory, vol. 8, p. 3o3, where Toynbee declares that 'the
Western Powers were tantalisingly inhibited from playing this
Palestinian card so long as they had any hope of keeping their
Anti-Semitic Russian partner in the firing-line, and it is no wonder
that the Balfour Declaration was published as soon as the last
Western hopes of further Russian military collaboration had expired'.
This is hopelessly confused and fanciful, for the Balfour Declaration
was not a'Western' but a British enterprise, and there is no evidence
of a Tsarist veto having delayed its appearance.
il3 The World in March 1939, p. r38.
rt4 Interuationa,l Affairc, vol. xx, October 1944, pp. 462-9,422.
u5 Grcat Britoin ond. the MiililJe East, pp. 54.
tr6 Politiquc Cbangire, rg4?, p. 47.
rr7 T. S. Eliot, East Coher.

462
 List of Works Cited

The following is a list of the published works cited in this book, with
the exception of British parliamentary papers and Debates, and of
newspapers and periodicals referred to for news items and the like. place
of publication is London unless otherwise indicated.

Abbas al-Azzawi, Tarihh-ar-Iraq bayn ihtilatain (History of Iraq Between

. Two Occupations), vol. VII, Baghdad 1955
Abbas Ali, Za'im al-thaura al-iraqiyya 1Tt6-I*.de, of the Iraqi Revo_
lution), Baghdad r95o
Abbas Mahmud al-Aqqad, Sa,d, Zaghlul, Cairo 1936
Abbott,_E., and Campbell, L., Life and, Letteri of Benjamin
Jowett,
vol. II, 1897
Abd al-Ahad al-Shafi, (pseud-J, Lamha tarikhiyyo fi ahhawiyyat al_qabr
al-muqad.ilas al-yunaniyy a (Historical outlinebi the Greek Biotuerhlooa
of the Holy Sepulchre), znd ed., n.p. r9o9
+Pq alAziz al-Qassab, Min dhihrayail (Recolections), Iteirut 196z
Abd al-Aziz Fahmi, Hodhihi hayati (This is my Life), Cairo r9O3
Abd al-Fattah abul-Nasr al-yafi, Mud.hahhirit qa'id, arabi (Meiroirs of
an Arab Commander), n.p., n,d.
Ab_dal-Jabbar Fahmi, sumum ar-aJ'a ar-sihyawni (poisons of the Zionist
Snake), Baghdad r95z
Abd al-Rahmar. Lzzam, 'al-Tarbiyya al-,askariyya wa atharuha f,l
sha'b' (Military Training and its Efiect on the people), al_Hilal, Cairo
r939
Abd al'Rahman al-Bazzaz, Muhailarat'an al-Ira4 min al-ihtilal hatta al-
istiqlal (I-ectures on Iraq from Occupation to Independence), Cairo
r954.
Safahat min al-ams al-qarib (pages from the Recent past),
Beirut 196o
Abd al-Rahman al-Raf i, Muqad.d,imdt thawrat z3 yulyu (preliminaries
of the e3 July Revolution), Cairo 1957
Abd al-Razzaq al-Hagsan, ar-urubofi ar,-mizan (Arabism in the Balance),
Baghdad 1933
Abd al-Razzaq al-Hasani, al-Asrar al-hhafiyya fi. hawad,ith sanat rg4r
al-taharuriyya (Hidden Secrets of the Li6eritory Events of r9{i1,
rst ed., Sidon 1958, znd ed., Sidon 1964

+6s
 LIST OF WORKS CITED
L'Action d.u parti, S.R. armCnien dit Daschnahtzoulioun r9r4-r923'
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Adams, C. C., Islam and Modernism in Egypt' 1933
Adib Ishaq, al.-Durar (The Pearls), Beirut r9o9
Ahmad Lmin, Hayald (My Life), znd ed', Cairo r95z
,C.h;.d Baha; al-Din , Ayyam laha tarihh (Flistoric Days)' Cairo 1954
Ahmad Biyali, Adli. Pasha, Cairo rgzz
,*rm.a Faiis al_Shidiaq, ai-saq,ala al-saq fi ma huua al-Fariaq (La aie et
aaenl,ures de Fariaq, ielation-de ses aoyages aaec ses obseraations
critiques
sur les Arabes el sir les ou!'res peuples\, Paris 1855
(Sa'd Zaghlul's
Ahmad Lutfi Hafiz, Sa'd. Zaghlil fi hayatihi al-niyabiyya
ParliamentarY Life), Caito t9z7
Ahmad Nasim So.o, Fi tariqi;ta:l'Istam (Ot my Way to Islam)'
vol' I'
Cairo 1936; vol. II, Najaf 1938
after [the
Ahmad srrinq easna, A'mali'oi,a mudhahnirati (My Activities
publication ofl my Memoirs), Cairo r94.r
'Misr ot-siyosiyya (Annual Survey of Egyptian
-'---, gouliyyat
Politics), ro vols., Cairo 19z6-1933

II, part z, Cairo 1936

.trl"t[ i.Vtani (ed.i, Rasa'il Amin al-Rayhani r896-t94o (Letters of
Amin al-Rayhani 1896-194o), Beirut 1959
efl".t Shuqayr, at-Distur al-misri wa'l-hihm al-niyabi
---E;pE;^ionstitution fi Misr (The
and Representative Government in Egypt)'
Cairo t9z4
e,fi eUa al-Islam wa usul al-hi'hm, Cairo r9z5; translation:
,L.Islam"t-n.riq,
et lesbases du pouvoir' it Reaue des Ctudes islomiques, vob.
VII and VIII, Paris 1933-4
a fi' l-thaur a al-iraqiyy a (The True
AI aif azirg ar., al_W aqi.i- at-haqiqiyy
Events of the Iraqi Revolt), Baghdad 1954
Ali al-Tantawi, Aagidad, musilahaiat wa ithihtayat (Baghdad: Scenes and
Memories), Damascus 196o
fi bilaa aLArob (In the Arab Countries), Damascus 1939
Ali Jawdat al-Ayyubi, Dhihrayat (Recollections), Beirut 1967
d'Aionzo, Alphonse, La Russie en Polestine, Paris rgor
e-i" tf i,frti, ayyiz, al-Mamlaha al'arabiyya al-su'udiyya hama'ataftuha
(The Sa'udi kingdom as I Knew It), Beirut 1963
Amii al-Rayhani,-al._Mahari wa,l.-hahin (The Muleteer a*d the Priest),
Beirut r9z9

Amin al-Rayhani, Qalb'Lubian (The Heart of the Lebanon)' znd ed"

Beirut 1958
r95r
Anis al_Nusili,,Ishtu ua shahhadtu (I Have Lived and Seen), Beirut
ila Abd, al-Nasir
a''o"y.o"., Kitab maftuh al-birnbashi.al-sabiq Jamal
(Open Letter to ex-Colonel Jamal Ab-d.al-Nasir), n'p" n'd'
Anwar al-Jundi, al-Imam al-Maraghi, Cairo r95z
err*.t at-ftlta'i, lihad. nisf qarn (Half a Century of Struggle)' Damascus'
n.d.
464
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Arpee, I*on, The Armenian Auahcning, Chicago r9o9
Bashir Ka'dan and Shafiq Shalati, Ha'ula' al-sahyuniyyuz (Those
Zionists), Damascus 1946
Batatu, Johrl., The Shaihh and, lhe Peasant in lrag ryt7-r958, unpublished
Ph.D. thesis, Harvard University, r96o
Bell, G. L., The Arab of Mesopotamia, Basra r9r9
Lady Bell, (ed.), The Lelters of Gertruile Bell, z vols., rgzT
Bentwich, N., Wanilercr Between Two Worlds, rg4z
Bernadotte, Folke, ?o Jerusalcm, rg5r
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Gouernmanl of Palesline to inquire inlo the Alfairs oJ thc Orlhodot
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Dowling, T.E., The Orlhodox Grcch Patriarchate of Jerusalem,3rd ed., r9r3
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473
Index

Abaza, Fu'ad, saa Fu'ad Abaza Abd al-Rahman Fahmi, organises

Abbas Hilmi, khedive of Egypt, 89, 9o; terrorism, rr7; dilatory ma.nner of
attaches Zaghlul to himself, 86; dealing with, r3o; freed by Zaghlul,
clashes with Zaghlul, 85; condoles r3z; organises boycott of Milner
with Zaghlul on death of his father- mission, t19; treatment in prison of,
in-law, 87; his opinion of Muham- 4r4 fn. r59
mad Abduh, 84; seeks throne in Abd al-Raziq, AIi, saa Ali Abd al-Raziq
Levant, 196 Abd al-Raziq, Mustafa, saa Mustafa
Abbas Mahmud al-Aqqad, r9z Abd al-Raziq
Abbud, Marun, saa Marun Abbud Abd al-Razzaq al-Hasani, z3z
Abd al-Aziz Fahni, 84, 88, 165; com- Abduh, Muhammad, saa Muhamnad
plainsof Hasan Nash'at's power, Abduh
185-6; dismissed as minister of Abdullah, second son of sharif Husain,
justice, r9z; protests against amend- (Iater amir and king), z3; policy
ment oI draft constitutiot, r7z, r74 over Palestino, z3o-r
Abd al-Aziz iba Sa'ud, quarrels with Abdullah al-Qassab, orgaoises pro-
Eg1ryt, r87; his views on caliphate, Iraq movement ia Mosul, 254
r88 Abu'l-Huda, Taw6q, saa Tawfiq abu'l-
Abd al-Ilab, regent oI lraq, 238, z4g; Huda
ambitions in Syria and Jordan ol, Adib Ishaq, 3zr
z7z-3; Hijazi rationality oI, 2?zi irr- Adil Arslan, r88, 196
creases power of Iraqi monarchy,zTo Adli Yakan, supports demand for
Abd al-Khaliq Tharwat, 89, 98; autonomy, 94; advises against com-
Allenby committed to support of, mutationof Abd al-Rahman Fahmi's
r58; becomes kime Minister, r58; sentence, r3r; asked by British to
deines task of Ns ministry, 164-5; endorse Milner-Zagblul agreemeot,
in favour of Zaghlul's deportation, r35; declines to form administration,
r52; re3i8n3 offce, r7r; his views on r7z-3; fails to reach agreemeot with
govertrEent of Egypt, r5r-2; utr- British, r42; in favour of constitu-
able to oppose proclamation of tionalism iu Egypt, 164; lorms
Fu'ad as king of Sudan, r7o ministry, r39; professes satis{actioa
Abd al-Qadir al-Jaza'iri, Amir, 43 at Zaghlul's deportation, t52; pro-
Abd a]-Rahman al-Bazzaz, defends poses negotiations with Zaghlul,
political activities oI students, 276 rz5-6; resigns as minister, 97, rtB;
Abd al-Rahman al-Kawakibi, r95 tak$ part in new ministry, rr7
Abd al-Rahman al-Naqib, 243; poor Ahmad al-Sanusi, proposed for spirit-
opinion of Faisal of, 255 ual caliphate, r89-9o
Abd al-Rahmaa Azzam, tg7, zt6, zr8, Ahmad Lutfi al-Sayyid, 95
426 h, 88; organises 'Territorial Ahmad lIahir, member of supremc
Army', 2tI; on Palestine w^r, 233 council for assassinations, rt7

474
 INDEX
Ahmad Nasim (Nissim) Susa, on his 148-9; proposes unilateral abroga-
conversion to Islam, 45r fn. z5 tion of protectorate, r5r, r53; re-
Ahmad Shafiq, 98; on proceedings of called to London, r57; regrets
caliphate congress, 193-4 Tharwat's fall, r7t-z; reports that
Alexandria, afiray at, r4o British advisers in Egypt demand
Ali Abd al-Raziq, publishes Islam and Egyptian independence, t4g-5oi
thc Foundalions of Aulhority, tgoi resigns as high commissioner in
similarity of his views to Maraghi's, Egypt, r59; supports Tharwat, 164;
r9o; trial of, rgr threatens to resign as high commis-
Ali al-Bazirgan, z5r sioner, 155-6; his treatment com-
Ali al-Mirghani, Sayyid, r 7; deprecates pared rvith \\:ingate's, 156; warns
discussing frontiers of Arab state, against wide modification of l\Iilner
zz; as intermediary betrveen British scheme, r37; warns of difficulty of
and Sharif Husain, r8 negotiating with Adli, r4r
Ali al-Tantawi, z4g, z7S; on disorders Alliance israClite uniuerselle, the, views
in Damascus, 4or, fn. 3z of schoolmasters sent by, 3o9-ro
Ali Jawdat al-Ayyubi, 237; incited by Altrincham, Lord, sce Grigg, Sir
Faisal to rouse Shi'ites, 244 Edward
Ali Mahir, u7, t65; British demand Amery, L. S., on end of Iraq mandate,
dismissal of, zr8; negotiates recog- 257-8; on middle eastern sottle-
nition by Eg'1pt of Sa'udi Arabia, ment, 398 fn. 7o
r98; his pan-Arab policy, zt6; Amin al-Husaini, sae Muhammad Amin
replaces Abd al-Aziz Fahmi as mini- al-Husaini
ster of justice, r92; takes anti- Amin al-Rayhani, anti-clericalism of,
monarchical line, 166 32r-2i acquires Arab identity,
Ali Sha'rawi, 84 324-5; pro-Muslim sentiment of,
Allenby, Field Marshal, 37; adopts 323-4
policy of concessions in Egypt, rrz, Ammun, Fu'ad, sae Fu'ad Ammun
r14; agrees with Clayton and Amos, Sheldon, 416 fn. zr3; threatens
Hayter, r48; allows Sharifian troops resignation oI British advisers in
to enter Damascus, 5r; appointed Egypt, 156; views on Egypt of,
special commissioner in Egypt, rro; r46-7
compels Fu'ad to give up claim to Anti-semitism, among Eastern Chris-
Sudan, r7z; defends his policy tians, 335-7; in Arab world, 449
against Foreign Office, r54; deports fn'79
Zaghlul, tSz: dismisses British Antonius, George, ryS, 33?; believes
officials in Egypt, t45-6; favours in primacy of Muslims in Arab
constitutionalism in Egypt, r58, nationalism, 339; influence of, 5;
169; imposes appointment of Adli reviewed by Gibb, 39r; significance
as prime minister, r39; insists in of career of, 3r8
releasing Zaghlul from Malta, Aqqad, Abbas Mahmud al-, saa Abbas
rr5-r6; miscalculates effects of Mahmud al-Aqqad
Zaghlul's release, rrZ; objects to Arab League, 215, ztg; and Palestine
appointment of Samuel, 56-7; ob- problem, 2zg-3o; record of, zz8
jects to Fu'ad becoming king of Arab movement, beginnings of in
Sudan, 169-7o; his opinion of Adli, r9r4-r8 War, 15; amorphous char-
r7o; opposes commutation of Abd actet of, z5
al-Rahman Fahmi's sentence, r3r; in Ottomau
Armenians, position of,
persuades Fu'ad to issue constitu- Empire, 287, 2go; attacks by
tion, rZ3-4; plans for capture of Armenians on, z96; Britain artd,, zgz;
Damascus of, 46; his policy in r9zz, communal reforms among, 2goi
r6z-3; prolesses ability to form demand for autonomy by z9r, 443
moderate government in Egypt, fn. r3; efiect of missionary activity
475
 INDEX
Armenians-cozld Bazirgan, Ali al-, saa Ali al-Bazirgan
among, 287-gr; massacres ot, zg7-9, Bazzaz, Abd al-Rahman al-, saa Abd
445 fn.36; nationalism among, al-Rahman al-Bazzaz
294-5; Ottoman reforms and, 294; Beeley, H., ou Amin al-Husaini, 385;
Protestant community formed on growing unity of Arab natioaal
among, z8g; Russia a'nd, zgo-2, feeling, 387
443 fn. ro Bell, C'ertrude, 262, 3or; confesses
Arslan, Adil, saa Adil Arslan representative govertrmeut in Iraq
Arslan, Shakib, saa Shakib Arslan a mistake, 266; has emotional scene
As'ad al-Shidiag, conversion to Pro- with Faisal, 244-5; oD. Faisal's im-
testantism of, 3zr position over Iraq, z6z-3; foresees
Askari, Ja'Iar al-, sec lz'lar al-Askari early end of Iraq mandate, 2S7i on
Assyrians, massacred by Iraq army, Nuri al-Sa'id, 27gi o\ position of
237, go6i Gibb on, 389; problem in shaikhs in lraq, z67i on pro-
Iraq of, 246,3o3-4; Toynbee on, 378 Ottoman sentiment io, Iraq, z4z;
Axis powers, their attitude to pan- her view of Cheetham, roo; her view
Arab demands, zzo-r of Faisal, 24o-r,263
Ayyubi, Ali Jawdat al-, saa Ali Jawdat Bentwich, Norman, 67, 4o4 fn, 4o
al-Ayyubi Bernadotte, Folke, z3o
Ayyubi, Shukri al-, saa Shukri al- Bethmaa, Erich W., z
Ayyubi Bevio, Eraest, his policy in Palestiue,
AzLz Ali al-Misri, zr7, 427 fn. 13 23t-2
Azmi, Mahmud, saa Mahmud Azmi Bidault, Georges, zz9
Azzam, Abd al-Rahmar, sz Abd al- Biodari, Kamil al-, saa Kamil al-
Rahman Azzam Bindari
Birthdays, in Islam, zor
Baghdad, predominance of Jewe in, Bourchier, Col., quells disorders in
254-5, $t7 {n. 65; its British Damascus, 4o, 5o
occupation in r9r7 a,nd r94r con- Bourdillon, B. H., z4r, 256, 2,63
trasted, 3o8; character of history of, Bowman, Humphrey, oa Patterson,
z8t-z 146; on Arab schools in Palestine
Baghdad Part,234 456 fn. 9r
Bakr Sidqi, 237-8: ar,clairned for Boyle, Harry, his opinion oI Zaghlul,
victory over Assyrians, 24?i denrand r40
by British for trial of, 446 h. 54; Britain, policy iu Egypt of, 96, to2;
massacres Assyrians, 246 attitude to Iraqi iqterveotion in
Bakri, Nasib-al-, saa Nasib al-Bakri Palestine of, 233i attitude to Pale-
Balfour, Arthur, agrees to Allenby's stine problem o1, z3r-z; attitude to
policy, r 14; concedx W afd demands, pan-Arabism of, zzr; attitude to-
to6-?; C:urzolds judgment of., ro7; ward Assyrians of, 3o3-4, 3o6;
refuses permissiotr for Egyptians character of postwar foreigo policy
to visit landon, too; his views on of, ro7; colonial experience ol, z6z;
Wingate's dismissal, rrr-rz consequeDces of bringing Faisal to
Balfour Declaration, 53; as interpreted Iraq to, 265{; consequences of
by Samuel, 55; Longrigg's view of, declaratioa of February, rg22 to,
39r; noo-publication in Palestine of, 163; declares Eg:yptian protectorate
57; Toynbee's view of, 46r tn. trz unsatisfactory, t38; dificultieg of
Banna, Hasan al-, sac Hasan al-Banna Middle Eastern policy of, zz84;
Barrow, Major-Gen. Sir G. de S,, 37 establishes ceutralised regime itr
Basir, Muhammad Mahdi al-, scc Iraq, z58j; aod Iraqi anti-Jewish
Muhammad Mahdi al-Basir legislation, 3rz-r3i and pan-Arab-
Basra, refusal to be included in Iraq iso,22S; policy ia Levant of, zzz-4i
of, 254 policy towa,rds Iraq mandate of,
476
 INDEX
Britain-conlil Chair, Somerset de, on disorders in
256-7; problem posed by Baghdad Baghdad in rg4r, 3o7
Pact to, 234-5; rejects mediation by Chalabi, Da'ud al-, sa Da'ud al-
Iraq and Egypt over Palestine, Chalabi
7g-8o; responsibility for recom- Chamberlain, Austen, zo, z9; his view
mending Iraqi independence of, 3r4; of Allenby's methods, r59; his view
support of Faisal by, z4z; tribal of king Fu'ad, 9o
policy in lraqol,267-8 Chamoun, Camille, zz4, 43o ln. 36
Brunton, C. D., estimate of Shukri al- Charlton, L. E. O., on British deference
Ayyubiby,43 &4oofn. z8; estimate towards Faisal, 433 fn. zo
of Muhammad Amin al-Husaini by, Chatham House, aims of, 35r-2i
6r character of publications on Middle
Brunyate, Sir William, 87, gz-3: East under auspices of, 383-4, 388,
Allenby terminates appointment of, 39o; establishes Cairo Group, 353;
145-6; his judgment of Wingate, ro8 establishes Research and Press
Bshara al-Khuri, zz3 Service, 352; transliteration of
Bunsen, Sir M. de, chairs committee Arabic words in works published
on Asiatic Turkey, r5 by, 458 fn. 37
Chauvel, Lt.-Gen. Sir Harry, 37, 42,
5r; describes actions on capture of
Cabinet, British, refuses to approve Damascus, 44, 4oo fn. zg
Allenby's policy, r55; gives in to Clauson, Gerard, ou E. T. Richmond,
Allenby, r57; prepares White Paper 6S
against Allenby, r57 Cheetham, Sir Milne, 87, 89; proposes
Cairo Group, views on Middle East to deport Zaghlul, tot-2; his
policy of, 393-4 reaction to disorder in Eg1ryt, ro4-5;
Caliphate congress, called in Cairo, reassures foreign office on tranquil-
r83; advantage of holding in Cairo lity of Egypt, roo; reported in
mooted, 186; assembles in Cairo, disagreement with Allenby's policy,
r 88; character of, 194-5 ; proceedings 4tz frr. rr9; urges policy of coa-
of, 193-4 cessions, r13
Caliphate, Sha,rif Husain's desire for, Cheikho, Louis, anti-semitism of, 336;
z3; abolished by Turks, r82; al- attacks freemasonry, 45o fn. ro
Sanusi proposed lor, r89jo; atti- Churchill, Winston S., 55, zzr; on
tude of Indian Muslims to, r8Z; consequeuces of concessions to
declared by Egyptian divines vac- EgWt, t42-3', defines British policy
ant, r83; Faruq gives up quest for, in Levant, zzz; explains uecessity
zo6; Faruq seeks, zo3-4; final death oI elections in l*vart, zz3
oI, 2o7i Maraghi's opinions on, Class, in the middle east, 384-5
t79-Bt, 2o8-r2; its offer to king Clayton, G. F., r4, 3r, 36; becomes
Fu'ad mooted, r83; ofrcial funds adviser to Egyptian ministry of
spent on promoting Egyptian, interior, 146; on commitmetrt to
184-5; Ottoman title to, 2rr; re- sharif Husain, 22; conscietrtious
quirement of Quraishite descent for, scruples of, z8; considers British
179-80, t84, zto; whether difterent committed to Milner proposals, 136;
Irom kiugship, ,79, tgo, 2og contrasts'Moslem fanaticism' with
Casey, Richard, zz3 Arab nationalism, r9r-zo; defends
Catroux, Georges, issues proclamation Arab policy in r9r5, r6-t7; des-
to T*varit, zzz cribes E. T. Richmond's positioa in
Cecil, Lord Edward, his position under Palestine Government, 64; his dis-
McMahon, 92, too like of Sykes-Picot Agreement, 24;
Cecil, Lord Robert, 29, ro8; urges favours unilateral grant of interoal
Wingate's removal, rogFrro autonomy to Eg1pt, 147-8; urges

477
 INDEX
Clayton, G. F.-conld ot, 34-6,4o-r; avoidance by non-
Arab policy in 1916-17, z5-6; his sharifian troops of, 38-9; capture in
views on policy toward EgYPt, r r3-4 rg4r ol, 42; capture of Baghdad
Clayton, I. N., chairman oI Cairo comparcd with capture of, 3o8;
Group, 353 disorder in, 39, 44-5, 47, 4or fn.3z;
C-onstitution, Egyptian, PreParation orders issued to caPture, 37-8, 48i
af, t65-71' amendment of draft of, sharifian troops allowed to enter, 5r
tZ2, tISi character of, 168-9; Iraqi, Darmsteter, James, r74
characteristics of, z5g, 449 tn.76i Da'ud al-Chalabi, rejects special pro-
promulgation of, r74 vision for minorities in lraq, 259
Cooper, Duff, on British PolicY in Decentralisation party, 25
Middle East, 225; on EgYPtian Declaration to the Seven, the, 39
Treaty, 143-4; on tr[ilner-Zaghlul Deedes, Wyndham, 66; advocat* Pan'
agreement, 414 fn. r5o; urges Spear's Arab federation, 78; proposes aboli'
tecall, zzr tion of privileged position of Zionist
Copts, campaign against, r99-2oo Organisation, 7r
Cornwallis, Sir Kinahan, 3t, 263; Deighton, H. S., SS3, SS+
expresses devotion to Faisal, 3o8; Delaney, G. C., 116
and non-occupation of Baghdad in Dobbs, Sir Henry, 263, 265; on Faisal,
rg4r, 447 fn. 58; possible role of-in z4o; his opinion of Iraqi regime, 265;
rigging Iraqi elections, 439 fn.95 provides arguments for abandoning
Cox, Sir Percy, z6z, 263; Protests Iraq mandate, 264
against anti-British demonstration Dowson, Sir Ernest, 268
in Baghdad, 243 Druzes, recruited for sharifian a.rmy,
Crane, Charles, propagates anti-scmi- 4o
tism among Muslims, 337
Cromer, Lord, t78; on Islam and Eden, Anthony, 206; encourages Pan-
politics, r4o-r; on parliamentarism Arabism, 2zo and 428 fn. 19;
in Egypt, r59, 169; on Zaghlul, 84 negotiates Baghdad Pact, 233-4
Crowe, Sir E1're, criticises Wingate, Eder, D. M., on election of Amin al-
ro9; objects to Allenby's policy in Husaini, 4o3 fn. z7
Egypt, r5o-r, 154-5 Egypt, British Protectorate in, 9r-z;
Curzon, G. N., z6z; deprecates follow- character of politics in, 38r-z; con-
ing Allenby's policy, r r4-5; on fronts Iraq, 234-5; consequences of
difliculty of negotiating *'ith Adli, declaration o{ February t922 to,
r42i disagrees with Cheetham's 16z; disorders in, roz; increase oI
proposals, ro5-6; disagrees with population in, ro4; inevitability of
Wingate's view of situation in its joining Palestine war, 232; its
Egypt, gg; estimate of Arab move- lack o( interest in pan-Arabism, zr5;
ment by, r4-r5; on Faisal as pros- martial law relaxed in, r18; objects
pective ruler of Iraq, z4o; his to Jerusalem congr$s, 196-7; Policy
judgment of Balfour, ro7; opts for of British advisers in, r49-5o;
declaring Egyptian protectorate un- political history of, 177-8; recog-
satisfactory, r37; rejects Allenby's nises Sa'udi Arabia, r98; recognition
policy, r50, r52; threatens to of British protectorate in, rt?i
resign in defence o( Allenby's policy, refuses to recognise Sa'udi kingdom,
r55, 4t7 fn. 243; urges Allenby's r87; sends army to Palestine, z16;
return to Egypt, rro; his views on wartime conditions in, roz-3
Wingate's future, rtr-tz; on Weiz- Elections, middle easteru, rePresent-
mann's tactics, 7G-r ativeness of, 76, 38r; EgYPtian,
character ofr 168-9; frauchise in
Dalton, Hugh, 43o fn. 53 Egyptian, 166-7; kaqi, character
Damascus, accounts of capture in r9r8 ol, 253, 260,265, 266

478
 INDEX
Elphinston,W. G., draws paratlel Freemasonry, in Middle East, 3zr,
and 45o fn. ro
between occupation of Baghdad
Damascus, 447 fi.6o Fu'ad Abaza, zo6
Fu'ad al-Khatib, z7
Fu'ad Ammun,33E
Fadil, at-Jamali, reports Iraqi agree' Fu'ad, sultan (later king) of EgYPt,
ment with British over Palestine, asks for Zagblul's emPloYment, 88;
232-3 allies himself to Zaghlul, r59, t?ti
Fahmi, Abd al-Aziz, saa Abd al'Aziz appeal (subsequeatlY denied) bY-
Fahmi for British protection, ror; becomes
Fahmi, Abd al-Rahman, saa Abd Ling, r58; caPitalises on anti-
al-Rahman Fahmi misaiooary agitation, r97; compelled
Fahmi al-Mudarris, organises anti- to give uP Sudan, t72; criticises
British demonstration, 243; defends Allenby, t6o-r; denies desire for
Yasin al-Hashimi't recotd, 277 caliphate, r83; his desire for the
Faidi, Sulaiman, saa Sulaiman Faidi caliphate, r8z-3; expresses surPrise
Faris al-Shidiaq, religious history of, at Miluer-Zaghlul agreement, r36-7;
32t gtants a constitution for Egypt, r 58 ;
Faisal, third son of sharif Husain (later invokes Italian helP on caliPhate
king of Iraq), advocates moderation question, 196; justifies suPPort of
to Assyrians, 246-?; au,are of Zaghlul, 176; his motives in suP-
Shi'ite grievances in lraq, 253; porting demand for autonomy, 95;
British deference towards, +33 objects to limitation of his powers,
ln. zoi character of, 241, 247; r7o; opposes Adli's aPPointment as
dictatorial Proclivities of, 246; prime minister, r37; oPPosition to
French opposition to, 24oi intrigues his ambition of becoming caliPh,
against his cabinet, 243-4; Law- 188-9; position as sultan of, 89;
rence's view of cha,racter of, 239; professes not to understand British
letter to Sa'id al-Jaza'iri from, 46; policy,r6er; quarrels with king
policy in Iraq of, 245; suPPorts Husain, 186; relations with Husain
extremists in Iraq, 243; suPPorts Rushdi of, 9o; suPPorts agitation to
Husri's educational activities, 273; proclaim him caliph, 183-4; supports
unpopularity of, z4t-2, 245 demand for autonomy, 94, 98,4o9 fn.
Faisal II, king of lraq, 236, 249 46; suspectsMustala Kemaland king
Fakhri al-Ahmadi al-Zawahiri, r78; Husain of aspiring to Caliphate, r8z
takes credit for adjourning caliphate
congress, I93 Gailani, Rashid Ali al-,saa Rashid AIi
Faruq, king of EgyPt, ProPoses cere- al-Gailani
monies for his own accession, r99; Gaulle, Charles de, zzt-2, zz4
attempt to present him as Islamic Gaury, Gerald de, on Nuri al-Sa'id,
rulet, zoz; declared descendant of 27g; on anti-Jewish disorders in
Prophet, 2o7; gives uP quest for Baghdad, 446 fn. 55
caliphate, 2c,6, 2t5:, instigates anti- George Hanna, examplifres transition
Ahmadi fatwa, zo6'7; orders \r'ar in from antLJudaism to anti-semitism,
Palestine, 2rq seeks caliPhate, 337
203-4, 2t1i seeks Pan'Arab leader- Gharabli, Mubammad al-, sca Muham-
ship, zo6, zr8 mad al-Gharabli
Faruqi, Muhammad Sharif al-, saa Ghassanism, 456 fn. 84
Muhammad Sharif al-Faruqi Ghazi, king ol Irag, 238; character o{,
Fischer, E. R., on British PolicY in 247-8; iovolved in oouPs d"ltat
Eg1ryt, rzo against his ministers, 248; irredentist
France, claims in Middle East oI, zo; ambitions of, 2484; mentallY re-
position in Levant of,222-5 tarded, 434 fn.39

479
 INDEX
the plated in Egypt, ro7; on reasons for
Gibb, Sir Hamilton A. R., calls
Arab nation an act of will,zr4; Allenby's appointment to Eg,ypt,
on Russian leadership in Middle rro-rr
East, 393; on Assyrian massacre, Hayter, Sir Williarr, advocates com-
389; connection with Chatham plete independence for Egypt, r45
House of, 46r fn. ro5; on Palestine Helleu, 1., zz3-+
problem, 39oi his view of Islam Henderson, Nevile, r59
and Arabism, zz7-8; his view Hikmat Sulaiman, 238
of Sunni-Shi'ite relations, 384-5; Hisam al-Din Jarallah, 6r, 4o4 fn, 39
on Zionist propaganda, 39r llitler, Adolf, zzr
Glubb, John Bagol, z3r-2, z5o Hogarth, D, G., discusses whether
Graham, Sir Ronald, 86; advises dis- sharif Husain betrayed, 22; urges
regard of Balfour's itrstructions, ro7; abandonment of Sykes-Picot Agree-
criticises Wingate, ro83 ment, z8
Grey, Sir Edward, 20,2gz I{umphrys, Sir Francis, on Assyrian
Grigg, Sir Edward (Lord Altrincham), problem, 3o4
on pan-Arabism, zz54; his solution Hurst, Cecil, member of Milner mis-
of Palestine problem, zz9 sion, his view on governmeot of
Grobba, Fritz, on title of Grand Mufti, Eg1pt, rzz-3; attempts to upset
4o3 fI.L. tZ Abd al-Rahman Fahmi's trial, r3r;
Guilt, feeling of, by British concerning invites Zaghlul to London, rz8
the Middle East, 3-4, 13, z7-8; Ilusain Kamil, sultan of Eg'ypt, 87;
Gibb expresses, 39o; Toynbee ex- complains of British officials in
Presses, 375 Egypt, 92; dislikes sharifian move-
Gwynn, William M., his views on ment, r8r-z
elections iu Levant, 429 fr,3z Husain Rushdi, 87; acts in concert
with ZagNul, 9r; asks for definition
of protectorate, 95; circulate answer
Haidar, Muhammad, saa Muhammad to Brunyate's proposals, 93; en-
Haidar courages oficial support for WaJd,
Haikal, Muhammad Husain, scc 98; forms new ministry, rr7; his
Muhammad Husain Haikal knowledge of Zaghlul's scheme, 99;
Haines, J., 9o; resigns, 146; takes his policy in constitutional commis-
responsibility for confiscating Wafd sion, 167; presides over Eg'yptian
petition, 97-8 constitutional commission, t65; re-
Hancock, W. K., on national and signs o6ce, 92, ttB; supports de-
religious divisions ia Palestine, 3r8 mand for autonomy, 94; views on
Hanna, George, sea George llauua governmetrt of Eg'ypt of. 9z
Hasan al-Banta, 2tZ; prayer written Husain, strarif of Mecca, as candidate
by him, zrg & 4zB fi, 17 for caliphate, 16, 18; ambition
Hasan Nash'at, r59; involvement with regarding caliphate, 23; E, Mar-
Wafd of ,4zo fn. 3r; organises Azhar morstein on British promises to,
demonstration against Tharwat, 396 fn, 3r; quarrels with Fu'ad over
r7r; promotes Fu'ad's claim to mahmal, 186; proclaimed caliph,
caliphate, r85 r8z; Toynbee's view oI British
Hasani, Abd al-Razzaq al-, saa Abd promises lo, 3?54
al-Razzaq al-Hasani Husaini, Jamal al-, sa Jamal al-
Ilashimi, Taha al-, saa Taha al- Husaini
Hashimi Ilusaini, Muhammad Amin al-, saa
Hashimi, Yasia al-, saa Yasin al- Muhammad Amin al-Husaini
Hashimi Husaini, Musa Kazim al-, saa Musa
Hardinge of Penshurst, Lord, ioforms Kazim al-Husaini
Wingate no concessions co[tem- Husri, Sati', saa Sati' al-Husri
48o
 INDEX
Ibrashi, Zaki al-, scc Zaki al-Ibrashi laza'iri, Abd al-Qadir al-, saa Abd
Ideologies, Western, effect on non- al-Qadir al-laza'ii
Western areas of, 3r9-zo laza'tui, Sa'id al-, saa Sa'id al-Jaza'iri
International Law, Muslim view of, Jerusalem, as factor in Palestine war,
tt-I2 z3z; Easter riots of r92o in, 58;
Iraq, as base for pan-Arabism, zr4, Orthodox patriarchate of , conditions
z7r-2, 276; Abdullah attempts to in, 326-7i mixed council lormed in,
involve-in Palestine, z3r; anti- 45+ frr. 43
British feeling in, 2784; anti-Jewish Jews, Iraqi, persecution of, 239, 3oZ;
legislation by, 3rz-3; and Assyrians, ask to become British subjects,
3o5-6; centralised regime estab- 3Oo-r; confiscation of possessions of,
lishedin, 2584, z6o, 269-70, 3r4i 3t2-r3i European influences on,
confiscatory laws in, 449 tn.76:. 3og-ro; immigration to Isracl oI,
constituent assembly of - coerced, 3rr-r2i object to Iraqi autonomy,
266; declared by British fit for 3oo-r; outbreak in r94r against,
sovereig'nty, z6z; defencelessnesg of 3o?j, 446 fn. 55; position in
property in, 268-9; difrculty of BagMad of, 3o6; scheme of ex-
governing, z4r; educatioual policy changing Palestioian Arabs against,
il;., 273-6; end of British mandate 3r r; their predominance in Baghdad,
ovet, 257-8; intrigues in Syria of, 254-5 & 436 fn.65, 3oo; Zionist
44-S; M. Khadduri on politica of, activitiee among, 3rc-tr
386; lack of provision for minorities Judaism, attitude of Muslims to,
in constitution of, 259; land prob- 334-5
lem in, 266-8; loyalty to Ottomans
of official classes in, 255; murder of Kamil al-Bindari, his views on cali-
royal family ol, 46', opposition to phate,2o5-2r7
conscription in, 436 fn. 58; Ottoman Kanna, Khalil, saa Khalil Kanaa
tradition of officials ir-, z7t, 277-8; Karim Thabit, zo7
persecution of Jews by, 239; pro- Kawakibi, Abd al-Rahman al-, s.e
Ottoman sentiment in, 242-3; Abd al-Rahman al-Kawakibi
reaches agreement with Britain over I(elly, Sir David, on Fu'ad's views, 16o
Palestine,233; reasons for r958 Kennington, Eric, 33, 4z
couf d'ltal in, 235; testimony by Keynes, Maynard, on Faisal in Paris,
A. D. MacDonald concerning regime 248
in, z6r; tribal risings in, 237-8 Khadduri, Majid, on Iraqi Politics,
Ishaq, Adib, saa Adib Ishaq 386; on auti-Jewish disorders in
Islam, religion and politics in, r77 Baghdad, 446 fn. 55
Isma'il Sidqi, t96-7, zr5 Khalil al-Sakakini, career of, 3r&-r9;
Isma'il Sirri, dralts Allenby's Pro- activity as pedagogue ot, 34t-23
posals, 4r7 fn.233; his views on anti-clerical agitation by, 332-31
Arab alliances, 43o fn.53; views on attitude to Judaism ot, 94, Y7-8;
government of Egypt, r3z-3 doubts about his relation to Muslims
of, 339-40; enthusiasm Ior Arabism
of, 339, 34o-r; enthusiasm for
Jabotinsky, Vladimir, 7o Young Turk revolution of, 332,
Jabr, Salih, sac Salih Jabr 338-9; on bis frnancial insecuritY,
Ja'far al-Askari, murdered by Iraqi 33o-r; fluctuating princiPles of,
officers, 238 333-4
Jamal al-Husaini, 74-5, 76 Khalil Iskandar Qubrusi, calls upou
Jamali, Fadil al-, saa Fadil al-Jamali Christians to adopt Islam, 339,
Jamil al-Midfa'i, 237, 48 343-350
Jarallah, Hisam al-Din, saa Hisam al- Khalil Kanna, reports Bevin's agree-
Din Jarallah ment to Iraqi intervention in
48r
 INDEX
Khalil Kanna-contil Longrigg, S. H., on capture of Damas-
Palestine, 233; on Abd al-Ilah's cus, 36; criticises French policy in
Syrian ambitions, 2?2i on elections Levant, 388; praises British policy
io Iraq, 438 tll..79 in Iraq, 389; reviews Weizmann's
Khatib, Fu'ad al-, saa Fu'ad al-Khatib Trial and Error, 46t fn. rrr; his
Khuri, Bshara al-, saa Bshara al-Khuri view of Syrian history, 386-2; on
Kirk, G. E., on Eglptian politics, 385; Zionist influence over British, 39r
on Middle Eastern frontiers, 386; Lutf al-Sayyid, Ahmad, saa Ahmad
on Zionist lactor in Middle East Lutfi al-Sayyid
politics, 39r-z
Kirkbride, A. S., testimony on Dam-
ascus events by, +5, +7 Macandrew, Major-Gen. H. J.M., fZ
Kitchener, Lord, reports clash between MacDonald, A. D., on character of
Abbas Hilmi and Zaghlul, 85; and Iraqi regime, z6r; on position of
Abbas Hilmi,86 British oficials in Iraq, 263-4
Kurds, of Iraq, refusal to be included McMahon, Sir llenry, gives account of
in Iraq of, 254; autouomy promised beginniug of Arab movement, t4;
by British to, 2S6i opposition to describes Arab movement as natiou-
pan-Arabism ot, 258; revolt against al not religious, 19; as higb com-
Iraq of, 237, 238-9 missioner in Egypt, 9r-z; on his
Kuwait, invasion attempt by Ghazi of, pledge to sharif Husain, zz; };.is
249 reliance on E. Cecil, ro8
MacMichael, Sir Harold, his view of
Law, Bonar, rr5 Sykes-Picot Agreement, 3r
Lawrence, T, E,, z6z, 3or; hostility Macmillan, Harold, urges Spears'
towards Jaza'iri brothers of,45-6; on recall, zzt
Robert Graves's account of capture Mahir, Ahmad, saa Ahmad Mahir
of Damascus, 34-5; treatment of Mahir, Ali, sea Ali Mahir
Druzes in Scuer Pillarc by, 4o; Mahmal, the, quarrel over, 186, r87
treatment of fall of Damascus in Mahmud Azmi, opposes Fu'ad's am-
Seacn Pillarc by, +t-3, +5, +z bition of becoming caliph, r89; on
Lebanon, the, political events in, zz3-4 Husrism h lraq, 274
Levant, the, elections demanded by Mahmud Fahmi al-Nuqrashi, member
British in, zz3; British policy in, of supreme council for assassinations,
22t-2 rr?, t3S; his attitude to Palestine
Liberal Coostitutionalist party, in problem, z16; and Egyptian inter-
Egypt, 164; embarrassed by Ali Abd vention in Palestine, z3o-r
al-Raziq's trial, r93; opposes Fu'ad's Makram Ubayd, r35; Muslim attacks
becoming Caliph, r90; protests on, r99
against amendment of constitution, Mann, J. S., on self-determination in
r72 Mesopotamia, 3oz-3
Lindsay, Sir Ronald, expects Fu'ad to Maraghi, Muhammad Mustafa al-, sac
behave as constitutional monarch, Muhammad Mustafa al-Maraghi
r39; approves Allenby's policy, r54; Maronites, and Western influence, 3zo
argues for leaving internal affairs of Marun Abbud, pro-Muslim sentiment
Egypt to Egyptians, 144-5; reports of.,323-4i anti-semitism of, 337
on negotiations with Adli, r4r-z Massey, W. T., 4oz fn. 4o
Lloyd, George (Lord Lloyd), z9-3o, Meinertzhagen, R., Zo
16r; his opinion of Haines, 97 Meyerson, Golda, z3o, z3r
Lloyd George, David, 52, z6z; gives in Middle class, in middle east, 8-9
to Allenby, r57; interviews Adli, Midfa'i, Jamil al-, see Jamil al-Midfa'i
r4z; offers Wingate peerage as con- Mikha'il Nu'ayma, on Russian in-
dition of silence, rrz fluence among Orthodox, 3283; on

482
 INDEX
Mikha'il Nu'ayma-cortd Muhammad Abduh, 8t, 84, r78
inculcation of Arab nationalism in Muhammad al-Gharabli, r84
Russian college at Nazareth, 33o Muhammad al-Sadr, 244
Mills, Eric, on Weizmann's attitude to Muhammad Amin al-Husaini, Hajj,
Arabs, 7r record of, 6o-r; allowed to assume
Milner, Lord, mission to Egypt headed post of mufti, 67; H. Beeley otr pre-
by, flrst mooted, rr5; aims at a ference for democracy of, 385;
treaty with Egypt, r3z; believes in controls Supreme Muslim Council,
negotiating with Adli, r38; breaks 7z; effects in Palestine of apPoint-
negotiations with Zaghlul, r36; ment as mufti of, 69; gives Samuel
change in his views on British policy pledge of good behaviour, 6r-2;
in Egypt, tzo-t; concedes control organises cotrgress in Jerusalem,
of foreign affairs to Egypt, r33; his 195-6; Samuel's pardon of, 4o3 fn.
conduct of negotiations with Zagh- zz; subsidised by kaq, z7z
lul, rz9; disappointed witb Egyp- Muhammad Faraj al-Minyawi, 186
tion politicians rz5; his manner of Muhammad Farid, on Zaghlul's re-
dealing with terrorism, I3o-r, t32; lations with nationalist partY, 85
optimism over Degotiations with Muhammad Haidar, z16
Zaghlul, t z6; preface to }ris Elglonil Muhammad Husain Haikal, 95; de-
in Egybt quoted, tzti reaches clares Maraghi used for Political
agreement with Zaghlul, r34; his purposes, zoo; defends Ali Abd
view of Allenby's policy, rr8; his al-Raziq, r9r; discusses EgYPtian
views on timing of mission, rt9; delegation to Palestine confereoce,
sec also Milner mission 2r6i ort Husain Rushdi's consti-
Milner mission, general conclusions of, tutional views, 167-8; on Inshass
rz3-4 ; defines Milner-Zaghlul Agree- meeting 2rS-t6l. his misgivings over
ment, r34; justifies negotiations Arab unity, 228; ot Nuqrashi's
with Zaghlul, r33 attitude to Palestine, z16; oa Pro-
Minyarvi, Muhammad Faraj al-, saa Axis sympathie's of EgyPtian mini-
Muhammad Faraj al-Minyawi with
sters, z18; reports conversation
Mirghani, Ali al-, saa Ali al-Mirghani Bindari on caliphate, 204-5, 2r7i
Misri, Aziz Ali al-, saa Aziz Ali al-Misri on WoId petition, 98
Missiona,ries, U.S. Protestant, view of Muhammad Mahdi al-Basir, 243
Islam of, 2i activities among Muhammad Mahmud, appointed Prime
Armenians ot, z8l-8: reaction oI minister by Faruq, rgg; dismissed
Maronites to proselitysing by, 3ze-r asprime ministet,2tZ; superseded as
I\Ionroe, Elizabeth, 35 delegate to Palestine conference, zt6
Montagu, Edwin, 89 Muhammad Murad, mufti of Hatfa,74
Moody, R., on elections in Palestine, 75 Muhammad Mustafa al-Ma,raghi,
Illosul commission, recommendations career of, 1783; advocates neutral-
of, 256, 257 ity in war for Egypt, zoz, 4z6fn. 77;
Mosul, pro-Iraq sympathies of, 254', agitation by Wafd against, 2o2;
British hold out to Iraq promise of appointed tutor to king Faruq, r98;
support over, 256-7 celebrates Faruq's birthday, zor;
Moyne, Lord, urges Spears's recall, zzr claims political Participation Is-
I{udarris, Fahmi al-, saa Fahmi al- lamic duty, zoo-r; his opinions on
Mudarris caliphate, r7g-8r, zo8-rz; ProPoses
Mufti, position in Islam of, 58-9; adjournment of caliphate colrgress,
election in rgzr of -of Jerusalem, r93; seeks to obtain caliPhate for
6z-3, 66: Ottoman regulations con- Faruq, zo3-4; similarity of his
cerning electionof, 6o; use of views on caliphate to Ali Abd al-
epithet 'Grand' to describe - of Raziq's, r9o; takes part in anti-
Jerusalem, 59 Coptic campaign, r99

483
 INDEX
Muhammad Rashid Rida, his know- Newcombe, Col. S. F., protests agarnst
ledge of Freach ambitious in Syria, betrayal of sbarif Husain, z7
24; attacks king Husain, r83-4, Nu'ayrna, Mikha'il, scc Mikha'il
422 fn. zr; on Kawakibi, r95; Nu'ayma
reports opposition to Fu'ad's be- Nuqrashi Mahmud Fahmi, saa Mahmud
coming caliph, r88 Fahmi al-Nuqrashi
Muhammad Sa'id, 8S-2, Sq, r39; Nuri al-Sa'id, 8o, 2,r5, 233, 238, 249i
favours postponing Milner mission, cooperates with Gailani, z8o; early
r19; forms ministry, rr8 history of, 255; gets in touch with
Muhammad Sharif al-Faruqi, r9-zo, Axis, z8o; has Hikmat Sulaiman
23 z8r; intimidates
senteDc€d to death,
Muhammad Tawfiq Nasim, brings members oI constituent assembly,
about uuderstanding betweet Wafd 279: involves British in pan-
and Fu'ad, r7r; excuses terrorism Arabism, 276; aanrl.er of his death,
in Egypt, r73; as prime minister, r7z z8r; ofiers to obtain Iraqi throne for
Murray, J., considers interrogation of Sa'udis, 248; proclaims pan-Arab
terrorist suspects unfortunate, r3z; ctedo, 234; promotes anti-Jewish
approves Allenby's policy, t54; confiscatory legislation, 3t2-r3 ; put
argues for to Eg;pt,
concessions in power by officers, 238; suspected
,43-4; disagrees with Allenby's of instigating murder of Taufiq
policy of concessions, rjc-r al-Khalidi, z8o
Musa Kazim al-Husaini, 6z
Muslim Brotherhood, zr7 Oficials, British, in Anglo-Eg'yptian
Mustafa Abd al-Raziq, appointed Sudan, influence of, 3r-z; in Iraq,
rector of al-Azhar, zo3 263-4,266i in Palestiue, attitude to
Mustafa al-Nahhas, r35; dbmissed by Zionism of, 52; support of Faisal by,
Faruq, r99; takes up pan-Arabiam, 245
zr8 Othodox Christians, Arabic-speaking,
Mustafa Kamil, 9o; Zaghlul's opinion position in Palestine of, 3r7, 3r9;
of, r84 anti-Greek agitation by, 33r; in-
Musta{a Kemal (Atattirk), r8z; pro- volvemeat witb Arab Datio[alism
poses fll-Sanusi for spiritual cali- of, 3r8-r9; radicalism amotrg
phate, r89 youager generatiol of, 33o; and
Muzahim al-Pachachi, z7o Russia, 327,328-3o
Ottomaa Empire, imperviousness to
Nablus, mufti of, 6il7 ideology of, 258, attitude to Arm-
Nahhas, Mustafa al-, scc Mustafa enians of, 29GZ; character ot, zg3;
al-Nahhas reforms and, 293, 315-16; Toynbee
Najib Nassar, 456 fn. 84 on, 36r-4
Naqib, Abd al-Rahman al-, saa Abd
al-Rahman al-Naqib Pachachi, Muzahim al-, soc Muzahim
Naqib, Talib al-, saa Talib al-Naqib al-Pachachi
Nashashibi, Raghib, saa Raghib al- Palestine, sharifian propaganda in, 57
Nashashibi & 4oz h. 15; and Arab League, zr9;
Nash'at, Hasan, saa Hasan Nash'at Arab and Muslim Interparliamen-
Nasib al-Bakri, 4o tary Congress on, 2o4i attitude to
Nasim, Tawfiq, saa Muhammad Tawfiq Jews of Muslims of, ?3-4; concilia-
Nasim tion by British of inhabitants of, 58;
Nassar, Najib, saa Najib Nassar elections in, l4-5; entry of Egyp-
Newbold, Sir Douglas, his views on tians into, zr6i tear of Ziouism by
Middle Eastern policy, 3r; favours inhabitants of, 57-8, 7o; Round
British support of pan-Arabism, Table Conference on, 79, 8r; scheme
226-7 of legislative council in, 73

484
 INDEX
Palestine problem, character of, 5-6; Rihbany, A. M., 336
Arab League and, zzg73o; Gibb on, Rivalry, Great Power, in middle east,
39o; mediation by Iraq and EgYPt 6-7, 4?
in, 79; Toynbee or, 375-6 Rossi, Ettore, zr7
Pan-Arabism, 2r3-r5; and British Royal Institute of International Af-
policy, zz5; British views in 1923 on, fairs, scc Chatham House
78-g; efrect on Baghdad Pact of, Russell, Thomas, 4r4 frt. t5g
234; and Iraqi ambitiotts, 27r-2; Russia and Orthodoxy in the middle
linked to solution oI Palestine east, 327,328-3o
problem, zzg; all.d Palestiue, 8r; its
relation to pan-Islamism, zr&r9;
views of Gibb on, 227-8; views of Sa'd Zaghlul, views on tYrannY of,
Haikal on, zz8 82-3; acts in concert with Fu'ad
Papen, Franz von,22o and ministers, 9r; allies himself to
Parker, A. C., Lt.-Col., views on Arab Fu'ad, r59; asks Milner for more
policy of, zo-r concessions, 136; attacks Adli, r3q;
Patterson, Reginald, comments on his attitude towards Adli, r35;
Allenby's policy in Egypt, r14; demands permission to go to Lou-
views of, 146 don, 95; deported from EgYpt by
ot Ghazi, 247,
Peterson, Sir Maurice, Allenby, r52; employment of, oP-
434 fn. 37; oo Nuri al-Sa'id, z8r, posed by British, 87, 88; fears to
442, lo,. t37 oppose Fu'ad's claim to caliPhate,
Philby, H. St. J., r98, 3or 186; goes to Paris, 116; member of
Picot, C'eorges, zo-r Fu'ad's ofici*e noctu/ne, 88-g;
ministerial career under Abbas
Qassab, Abdullah a1-, sec AMullah Hilmi, 84-5; proposes caliPhate to
al-Qassab al-Sanusi, r89; protests against
Qubrusi, Khalil Iskandar, saa Khalil arrest of Abd al-Rahman Fahmi,
Iskandar Qubrusi r3r; protests against coniscation of
Wald petitior,, 97; record in legis-
Raghib al-Nashashibi, 62, 4o4 fo,.4o, lative assembly of, 86-7; secretly
72, 76 disavows agreement with Milner,
Rashid Ali al-Gailani, his demands on r34; his tactics iu attacking con-
Axis, 22o-t; encourages Shi'ite stitutional commissiou, 165; threat-
discontent, 25r; intrigues with ens Fu'ad, roo-r; ToYnbee on,
officers, 238; suppresses Assyrians, 38o-r; wins Egyptian elections, r59,
246-7 r?6
Rashid Rida, saa Muhammad Rashid Sadr, Muhammad al-, sec Muhammad
Rida al-Sadr
Rattigan, Terence, his play lRoss Sa'id al-Jaza'iri, Amir, takes charge
quoted, 33-4 of Damascus, 43; recollections of
Rayhani, Amin al-, saa Amin al- Damascus events bY, 46
Rayhani Sa'id, Nuri aI-, sae Nuri al-Sa'id
Richmond, Ernest T., friendship with Sakakini, Khalil al-, sea Khalil al-
Ronald Storrs of, 63; delends ap- Sakakini
pointment of Muhammad Amin Salih Jabr, 233, z6o; downfall after
al-Husaini as mufti, 68; enhances negotiating Portsmouth treatY of,
positiou of mufti of Jerusalem, 68, 238
4o4 fn.4z; position in Palestioe Salim Mikha'il Shahhada, role in anti-
secretariat of, 64; pro-Arab sym- Greek agitatiort of, 452 fo'.32
pathies of, 64; supports Muhammad Salisbury, Robert, 3rd Marquess of, on
Amin al-Husaini, 66-7; views on Armenian question, z9z
Palestine Mandate of, 65 Salvation, by grace, doctrine of, 2883

485
 INDEX
Sami Shawkat, z8o Simson, H, J,, on political conditions
Samuel, Sir Herbert (later Viscouut), in Palestine, 73
Zionist beliefs ot, 5z-4; acquiesces Sirri, Isma'il, saa Isma'il Sirri
in Muhammad Amin al-Husaini Smuts, Jan, 29, 55, 398 fn.7o
becoming mufti, 66; advocates paa- Spears, Sir Edward, zzr; role io
Arab federatior, 77-8, 8o-r; ad- Lebanese politics of, zz3
vocates E. T. Richmond's retention Spender, J. A,, reports Milner's views,
in Palestine, 64; considers appoint- rzo; view on policy towards Eg;ryt
ing Muhammad Amin al-Husaini of, t2t-2, t23
mufti, 6r-z ; fears close identiGcation Stack, Sir Lee, 3r, r59
of Pdestine Goveroment with Ziou- Stark, Freya, advocates British eup-
ista, 7r, 4o5 fn.49; hesitates iu port for pan-Arabism 226; oo DoE-
accepting post of high commissiouer occupation of Baghdad ia r94r,
in Palestine, 54; motives of, iu 442 fn.58; her wiew of British
establishiug Supreme Muglim Coua- difficulties in middle east,228n
cil, 7o; opposes partition of Palestine, Stirling, Col. W. F.,43
8o; pardons Muhamrrad Amin al- Storrs, Ronald, looks forward to
Husaioi, 6r, 4o3 fn, zz; policy in British dominioo iu the middle east,
Palestine of, 54-6; proposes to 17; dismisses Musa Kazim al-
discuss Palestine with Nuri al-Sa'id, Husaini as mayor Jerusalem, 6z;
8o; his views on legislative council friendship with E. T. Richmond of,
elections, Z+; his views oD, mitrht 63; on Jerusalem riots, 4oz fo' t5;
systarn, 69 possible inclinatiou to appoint
Sanusi, shaikh Ahmad al-Sanusi, saa Muhammad Amin al-Husaini mufti,
Ahmad al-Sanusi 62, 4o3 fi.26, 4o4 fn. 4o; views on
Sati' al-Husri, educational views of, sharif Husain's demands, 2r
273-4 Strabolgi, Lord, on British policy io
Sa'ud, Abd al-Aziz ibn, saa Abd middle east, zz5
al-Aziz ibo Sa'ud Sudau, the Anglo-Egyptian, iu Egyp-
Selby, Walford, favours withdrawal tian constitutioual debates, 169-7o
lrom Egypt, r48; canvasses Zaghlul's Sulaiman Faidi, attitude to Ottomans
exile, 4r7 In. z3z of., 256
Shahhada, Salim Mikha'il, saa Salim Sulaiman, Hikmat, sac Hikmat
MiL.ha'il Shahhada Sulaiman
Shakib Arslan, r83, r84, r88 Sunnis, of lraq, pan-Arab ambitions
Shawkat Ali, 196 of, 253
Shawkat, Sami, saa Sami Shawkat Supreme Muslim Council of Palestiue,
Shidiaq, As'ad al-, saa As'ad al-Shidiaq 6917o; establishment and powers of,
Shidiaq, Faris al-, saa Faris al-Shidiaq 72, 4o5 fo.. 5z
Shi'ites, ol Iraq, incited by Faisal, 244; Susa, Ahmad Nasim (Nissim), saa
antiBritish movement of, z4g-5o:. Ahmad Nasim (Nissim) Susa
deportation by British of leaders of, Sykes, Sir Mark, oo Armeniao mass-
z5o; fear of Sunni dominance by, acres, 445 fn.36
z5r-z; grievances of, 283-5; official Sykes-Picot Agreement, uupopularity
Iraqi attitude toward, 435 fn.56; of, zr, 24, z6; Amery and Smuts
opposition to conscription by, zS3; opposed to, 398 fn. 7o; disowuingby
their religious feelings offended, British oI, z9-3o
253-4 Symes, G. S., future middle-eastern
Shuhi al-Ayyubi, appoiuted by Law- policy envisaged by, 3o; quoted on
rence governor of Damascus, 43; influence of British officials io Anglo-
activities il Damascus of, 44 Egyptian Sudan, 3r
Sidqi, Bakr, saa Bakr Sidqi Syria, political events io,, zz4-5; io-
Sidqi, Isma'il, sac Isma'il Sidqi citement of Iraqis by sharifians

486
 INDEX
Syria-conlil practice, 355; on relation between
from, 249-5o; Iraqi intrigues in, Shtdy of History and Suruey of
234-5, 249, z7r-z; Lotgrigg on Intcrnalional Affabs, 354-5, 382;
history of.,386-7 on self-determination aud mimesis,
357-8; his theory of contact between
Taha al-Hashimi, put in power (and civilisations, 366-8, 459 fo. +7:
dismissed) by officers, 238; clashes treatment of current affairs by,
with Abd al-Ilah, 27o-r; reports 382-3; his view of Zaghlul, 38o-r;
Ghazi's implication in coup d,'Ctat, his vision of history, 354; on violence
248 and gentleness, 35frt, 368j; his
Talib al-Naqib, attitude to Ottomans work inlected by nationalist doc-
ol, 255 trine,366,37o-r
Tantawi, Ali aI-, sea Ali al-Tantawi
Tawfiq abu'l-Huda, z3r-z
Tawfiq Nasim, saa Muhammad Tawfiq Ubayd, Makram, saa Makram Ubayd
Nasim Umar Tusun, prince, role in organising
Thabit, I{arim, sa Karim Thabit demand for autonomy of, 93-4, 4oE
Tharwat Abd al-Khaliq, saa Abd al- fn. 37
Klaliq Tharwat Union party, in Eg)?t, r92
Tilley, Sir John, considers sentence Uspensky, Porphyr, as defender of
against Abd al-Rahman Fahmi a Arabic-speaking Orthodox, 327
mistake, r3r; expresses surprise at Ussishkin, Menahem, 7o
Zaghlul's bad faith, 134-5
Times, The, welcomes Arab League,
227 Vansittart, R., ro6, rr7
Toynbee, Arnold Joseph, director of
studies at Chatham House, 353;
accepts claims of pan-Arabism, Wafd, the, forrr.ation of, 95; accused
376-2; affnities of his doctrine with of coptism, r99; attacks constitu-
radicalism, 372-3, 375: approves tional commission, r65; attacks
British policy in Iraq, 378; on Tharwat's ministry, r7r; British
Assyrian massacre, 378; believes in support of, alleged, 98; high-handed
diminishing importance of religion methods of, rzgr-3o; increase in
in the middle east, 38o; oD British power of, rr7; opposes Fu,ad be-
promises to Husain, 375-6; com- coming caliph, r89; petition of,
pares Sparta and Ottoman Empire, circulated, and confiscated, 97:
363-4; considers Arabic Society publishes manifesto against Adli,
assassinated by Ottomans, 364-5; r4o; scissioo within, r35; subsidised
considers Judaism source of western by Fu'ad, r59; tries to eliminate
aggtession, 373-4; director of Re- royal factor from Egyptian politics,
search Department, at Foreiga r98
Office, 352-3; disapproves of French Wahba, Yusuf, saa Yusuf Wahba
policy in Syria, 3783; equates Walrond, Osmond, his role in Egyptian
Zionism and Nazism, 36o; favours negotiations, rz6; describes Zaghlul
Sunni Arab nationalism, 37g-8o; as despot, 136; suggests Curzon
on history of Ballour Declaration, invite Zaghlul to Londou, r4r;
46t f.n. rrz1, his hostility to politics, supports Zaghlul in protesting
358-60; indicts western capitalism, against arrest of Abd al-Rahman
373, 382; on mortality of civilisation, Fahmi, r3r; urges Milner to invite
355-7; on Muhammad, 362; ort Zaghlul to London, rz7-8
Ottoman empire, 36r-4, 366; place Wauchope, Sir Arthur, 76
of language in doctrine of, 369-7o; Wavell, A. P., and occupation of
on relation between history and Baghdad, 3o8, 447 fn.58

487
 INDEX
Weizmann, Chaim, attitude to Pales- Winterton, I-ord, on Nuri al-Sa'id's
tine Arabs of, 7o-t; his memoirs Palestine policy, 8o
reviewed by Longrigg, 46r fn. rrr;
protests against Palestine protocol
in Arab League pact,428 fn. 18 Yahya Ibrahim, r59, tZ3
Wellesley, A., on decline of resPect for Yasin al-Hashimi, 237, 238; acquires a
British in Eg:ypt, ro3-4 fortune in land, 268-9; and aati-
Westernisation, consequences of, in
Jewish terrorism in Baghdad, 3oZ;
Middle East, 9-rr encourages Shi'ite discontent, 25r;
Wilson, Brigadier, commander of 3rd flees from Muntafiq, 244; mistrusted
Australian Light Horse Brigade, by Ghazi, 248; organises opposition
enters Damascus, 38, 49-5o to Anglo-Iraqi ieaty, 265
Wilson, Colonel, C. 8., r4, 18; takes Yazidis, Iraqi expedition against, 237
up sharif Husain's caruse,26-? Young, Hubert, on size of Sharifian
Wingate, Sir F, R., on possibilities of
forces,37
Arab movement, 14, r7-r9i can- Yasuf Wahba, forms ministry, rr9;
vasses opinions ou caliPhate, r?9', reluses to be consulted on proposds
commetrts on commitments to sharif of Milner mission, rz4
Husain, zz; disagrees with AllenbY's
policy, rr4-5; disowns Sykes-Picot
Agreement, 29; opposes Zagtrlul's
appointment as minister, 88; reasons Zaghlul, Sa'd, sea Sa'd Zaghlul
for supersession of, ro8; rebuked by Zaki, al-Ibrashi, 4r8 fn. 258
foreign office, 96; reports Husain Zawahiri, Fakhri al-Ahmadi al-, saa
Kamil's complaints, 9z; rumours in Fakhri al-Ahmadi al-Zawahiri
London concerning, ro9; summoned Zeine, Z. N., on capture of Damascus,
to London, 99; sympathies with 36
Arabs of, 15-16; his treatment by Zionism, role in Chatbam House
British ministers, rrr-r2; his treat- Version of, 39o-r
metrt compared with Allenby's 156; Zionist Commissiou, 7o
views on Fu'ad of, 89; warns of Zionists, protest against Arab I-eague
Eglrytian demands for autonomy, interest in Palestine, zzo; activities
90, 93 among Iraqi Jews of, 3ro-rr

488
Errata

p. 3, line r8t |orttunsubstantial" read. "insubstantial"

p. 3,line z3: |or ttdoctrins" read,"doctrines"
('insubstantial"
p. 23, line t8: lor "unsubstantial" read,
p. 5r,line 3z: lor l'enterq" readt'enter?"
p. 76, line z8: |or "representative" read, '(representatives"
p. ro2, line 38: lor "cotate" read. "coruCe"
p. r65, line ro: Add a comma after "again"
p. r65, line 14: ttcounoil" read.
for "council"
p. 165, line z7 : lor "ahqiya" read "ashqiya"
p. r 7 l, line z z : I or " recht staat" r ead " Recht s taat"
p. r95, line r5: substitute a comma for the period alter "Awakening"
p. rg7 ,line 35: delete comma after ttd'affaires"
p.2r4,line 37: loz ttkingdoms" read. '(kingdom"
p. 24r,line 33 : lor "Tauriq" read "Tawuq"
p. 243,line 35: delete comma at end of line
p. 24;,last line: lor "has" read "had"
p. 254, line z6: for "Abdullah" read. "Abd al-Aziz"
p. 306, line 4: lor "woman" read "wome\"
p. 348, line 43: lor "throughout" read "through"
P. 349, line z9: tor "god" read "gods"
p. 360, line g: lor "nauseun " read "nauseam"
p. 362,line 39: lor "ra'iyya" read "ra'iyya"
p. 363, lines 5, zo: lor'(ra'iyya" read "ra'iyya"
p. 366, line r3: /or "enthsuiastically" read"enthusiastically"
p. 3 70, line 33 : lor "affiuents" read. tteffiuents"
p. 375, line 34: for "Storrs" read"Storr"
p. 393, line rz : lor
('out"
read "o:ut"
p. 4oo, line z 5: lor "hikm read "hukm"
p. 432 ,line 3 5 : lor 'tabd" read '( Abd"
P. 433, line z8: lor "leters" read'(letters"
ttScnes" read,
P. 435, Iine r8: /or "Scenes"
p. 438, line z: delete comma af.ter "al-majlis"
 ERRATA

p. 443, line 3z: Jor "Armenians" read "Armenian"; lor "societes"

read "sociitCs"I lor "artnefllefines" read "armCniennes"I lor
"aprCs" read "aprCst'
p. 444,line rr : lor " francais" read, " frangais"
p. 448, Iine z7: lor "israelite" read"israClite"
p. 45r,line z3: /or "Na w"read ttNatum"
P. 45 r, line 33: lor "Bahara" read "Bshara"
p. 456, line 6: lor "tesha'asla" rcad "tesha'esre"
p. 456, line ro: lor "cClebre" read"cClCbre" I lor "in" lead,"d,t"
p. 459, line 14:lor'tli{ananrt"read, t'IJananv"
p. 464,line z6: lor "hikm" rcad "huhm"
p. +65, line zo: alter "Atrocities" add comma and "r896"
P. 469,line 7: lor "'asla" tead"'esre"
P.473t line z8: /or "hikm" read,"hukm"
]VAN R. DEE PAPERBACKS

EuroDean and World Historv

Ceoffrey Blainey, A Short iistory of the Wortd
Laurie Winn Cailson, Cattle: An'lnformal Social History
fohn Charmley, Chamberlain and the Lost Peace
Donald T. Critthlow and Agnieszka Critchlow, eds., Enemres of the State
,lohn K. Dickinson, Cetman and lew
Lee Feigon, China Rising
Lee Feigon, Demystifying Tibet
Lee Feigon, Mao
Mark Frankland, The Patriots' Revolution
Lloyd C. Cardner, Spheres of lnfluence
David Cilmour, Cities of Spain
Raul Hilbere. The Politics of Memorv
Raul Hilberi, et al., eds., The Warsaw Diary of Adam Czerniakow
Certrude Hi-mmelfarb, Darwin and the Darwinian Revolution
Certrude Himmelfarb, Maniage and Morals Among the Victorians
Gertrude Himmelfarb, Victorian Minds
Thomas A. ldinopulos, lerusalem
Thomas A. ldinopulos, Weathered by Miracles
Allan Janik and Stephen Toulmin, Wittgenstein's Vienna
Elie Kedourie, The Chatham House Version
Warren F. Kimball. forsed in War
Hilton Kramer and Ro{er Kimball, eds., fhe Betrayal of Liberalism
Ronnie S. Landau, Ihe Nazi Holocaust
Primo Levi, The Search for Roots
Carmel McCaffrey and Leo Eaton, /n Search of Ancient lreland
Filip Miiller, Eyewitness Auschwitz
Clive Ponting, l94O: Myth and Reality
David Pryce-Jones, The Closed Circle
A.L. Rowse, The Elizabethan Renaissance.' The Life of the Society
A.L. Rowse, The Elizabethan Renarssance: The Cultural Achievement
Scott Shane, Dismantling Utopia
Pbul Webster, Petain's Crime
John Weiss, ldeology of Death

American Historv and American Studies

Andrew J. Bacevich, ed., fhe hperial Tense
Anthony J. Badger, fhe New Deal
Stephen Vincent Bene\ bhn Brown's Body
Hehry W. Berger, ed., A William Appleman Williams Reader
Andrew Bergman, We're in the Money
Paul Boyer, ed., Reagan as President
William Brashler, losh Cibson
RobertV. Bruce, I 877 : Year of Violence
Douglas Bukowski, Navy Pier
Philip Callow, From Ncr:,n to Starry Night
Laurie Winn Carlson, A Fever in Salem
Laurie Winn Carlson, Cattle: An lnformal Social History
Christopher Clausen, faded Mosaic
Kendrick A. Clements, Woodrow Wilson
Richard E. Cohen, Rosten&owskl
David Cowan and lohn Kuenster, To Sleep with the Angels
Donald T. Critchlow and Agnieszka Critchlow, eds., Enemies of the State
Ceorge Dangerfield, Ihe Eia of Cood Feelings
Clarence Dairow, Verdicu Out of Coutt
Allen F. Davis, American Heroine
Floyd Dell, lntellectual Vagabondage
Elisha P. Douglass, Rebe/s and Democrats
Theodore Draper, fhe Roots of American Communism
 Edward Jay Epstein, News from Nowhere
Joseph Epstein, Ambition
Peter C. Filene, ln the Arms of Others
Richard Fried, ed., Bruce Barton's Ihe Man Nobody Knows
Lloyd C. Gardner, Pay Any Price
Lloyd C. Cardner, Spheres of lnfluence
Phul W Clad, McKinley, Bryan, and the People
Eric F. Coldman, Rendezvous with Destiny
Sarah H. Gordon, Passage to t)nion
Ceorge and Willene Hendrick, The Creole Mutiny
Ceorge and Willene Hendrick, Fleeing for Freedom
Daniel Horowitz, The Morality of Spending
Kenneth T. Jackson, The Ku Klux Klan in the City, I 9 I 5- t 9 30
Warren F. Kimball, Forged in War
Edward Chase Kirkland, Dream and Thought in the Business
Community, l86O-1900
Herbert S Klein, Slavery in the Americas
Aileen S. Kraditor, Means and Ends in Ameilcan Abolitionism
Hilton Kramer, The Twilight of the lntellectuals
Hilton Kramer and Roger Kimball, eds., fhe Betrayal of Liberalism
lrving Kristol, Neoconservatism
Leonard W. Levy, Emergence of a Free Press
Leonard W Levy, lefferson and Civil Liberties:The Darker Side
Leonard W. Levy, Original lntent and the Framers' Constitution
Leonard W. Levy, Origins of the Fifth Amendment
Leonard W. Levy, Ihe Palladium of lustice
Heather Mac Donald, Ihe Burden of Bad ldeas
Myron Magnet, ed., The Millennial City
Myron Magnet, ed., Modern Sex
Seymour J. Mandelbaum, Boss Tweed's New York
Thomas J. McCormick, China Market
John Harmon McElroy, American Eeliefs
Wendy McElroy, ed., Liberty for Women
Cerald W. McFarland, A Scattered People
Walter Millis, The Martial Spirit
Nicolaus Mills, ed., Culture in an Age of Money
Nicolaus Mills, tike a Holy Crusade
Roderick Nash, Ihe Nervous Ceneration
Keith Newlin, ed., American Plays of the New Woman
William L. O'Neill, ed., fchoes of Revolt:The Masses, 19ll-1917
Gilbert Osofsky, Harlem: The Making of a Cheuo
Edward Pessen, Losing Our Souls
Clenn Porter and Harold C. Livesay, Merchants and Manufacturers
John Prados, The Hidden History 6f the Vietnam War
John Prados, Presidents' Secret Wars
Patrick Renshaw, The Wobblies
Edward Reynolds, Stand the Storm
Louis Rosen, The South Side
Richard Schickel, The Disney Version
Richard Schickel, tntimate Strangers
Richard Schickel, Matinee ldylls
Richard Schickel, The Men Who Made the Movies
Budd Schulberg, Moving Pictures
Edward A, Shils, Ihe Torment of Secrecy
Robert Shogan, Bad News
Ceoffrey S. Smith, To Save a Nation
,lohn David Smith, Black ludas
Robert W Snyder, fhe Voice of the City
Bernard Sternshe\ ed., Hitting Home: The Creat Depression in Town
and Countrv
Bernard Sterns6er, ed., Hope Restored: How the New Deal Worked
in Town and Country
Bernard Sternsher and Judith Sealander, eds., Women of Valor
Peter S. Temes, Against School Reform
Athan Theoharis,-from the Secret Files of l. Edgar Haver
james Tooley, The Miseducation of Women
Nicholas voir Hoffman, We Are the People Our Parents wamed Us Against
Norman Ware, The lndustrial Worker, 1840-1860
Robert Weisbrot, Maximum Danger
Mark J. White, ed., fhe Kennedys and Cuba
Tom Wicker, /FK and LBI: The lnfluence of Personality upon Politics
Robert H. Wiebe, Euslnessmen and Reform
T. Harry Williams, McClellan, Sherman and Crant
Miles Wolfl Lunch at the 5 & l0
Randall B. Woods and Howard Jones, Dawning of the Cold War
American Wavs Series:
John A. Aridrew lll, Lyndon lohnson and the Creat Society
Roser Daniels. Nor tike Us
J. NTatthew Cillman, The North Fighx the Civil War: The Home Front
Lewis L. Could, 1968: The Election That Changed America
D. C. Hart, That Old'Time Religion in Modern America
John Earl Haynes, Red 5care or Red Menace?
Kenneth J. Hbineman, Put Your Bodies lJpon the Wheels
R. Douglas Hurl, Problems of Plenty
D. Clayton James and Anne Sharp Wells, From Pearl Harbor to Vl Day
fohn W. .feffries, Waftime America
Curtis D. Johnson, Redeeming America
Maury Klein, The Flowering of the Third Ametica
Larry'M. Logue, Io Appoiattox and Beyond
JeanV Matthews, Ihe Rise of lhe New Woman
Jean V. Matthews, Women's Struggle for Equality
lwan W. Morgan, Deficit Covernment
Robert Mucci-grosso, Celebrating the New World
Daniel Nelson, Shifting Fortunes
Thomas R. Pegram, Battling Demon Rum
Burton W. Peretti, lazz in American Culture
David Reynolds, From Munich to Pearl Harbor
Hal K. Rothman, Saving the Planet
John A. Salmond, "My Mind Set on Freedom"
Cene Smiley, Rethinking the Creat Depression
William Earl Weeks, Buildrng the Continental Empire
Kevin White, Sexual Liberation or Sexual License?
Mark l. White, Missiles in Cuba

Literature, Arts, and Letters

Roger Angell, Once More Around the Park
Walter Bagehot, Physics and Politics
Svbille Beilford, Aldous Huxley
Siephen Vincent Bendl, lohn Brown's Body
lra Berkow, The Minority Quarterback
lsaiah Berlin. The Hedgehog and the Fox
F. Bordewijk, Characier
Robert Brustein. Cultural Calisthenics
Robert Brustein, Dumbocracy in America
Robert Brustein, The Siege ol the Arts
Anthony Burgess, ShakesPeare
Philip Callow, Chekhov
Philib Callow From Noon to Starry Night
Philib Callow Son and Lover: The Young D. H- Lawrence
Anton Chekhov The Comic Stories
Bruce Cole, The lnformed Eye
James Could Cozzens, CastawaY
James Could Cozzens, Men and Brethren
Theodore Dalrymple, Liie at the Bottom
Clarence Darrow, Verdicts Oul of Coutt
Floyd Dell. lntellectual Vagabondage
Theodore Dreiser, Eest Sho rt Stories
foseph Epstein, Ambition
Robert Thomas Fallon, A Theatergoer's Cuide to Shakespeare
Andr6 Cide, Madeleine
Cerald Craff, Literature Against luelf
John Cross, The Rise and Fall of the Man of Letters
Olivia Cude and Jeff Huebner, Urban Art Chicago
Raul Hilberg, The Politics of Memory
lrving Howe, Politics and the Nove/
lrving Howe, William Faulkner
Aldous Huxley, After Manv a Summer Dies the Swan
Aldous Huxlei,, Ape and issence
Aldous Huxley, Collected Short Stories
Vladimir Kataev, lf Only We Could Know!
Roger Kimball, Experiments Against Reality
Roger Kimball, Lives of the Mind
Roger Kimball, Tenured Radicals
Hilton Kramer, The Twilight of the lntellectuals
Hilton Kramer and Roger Kimball, eds., Against the Crain
Hilton Kramer and Roger Kimball, eds., fhe Survival of Culture
F. R. Leavis, Revaluation
F. R. Leavis, The Living Principle
F. R. Leavis, The Critic as Anti-Philosopher
Marie-Anne Lescourret, Rubens: A Double Life
Primo Levi, The Search for Roots
Sinclair Lewis, Selected Short Stories
Lynne Munson, Exhibilior1ism
Carl Rollyson, Reading Susan Sontag
Carl Sandburg, Poems for the Peopli
Arthur Schnitzler, Night Cames
Budd Schufberg, The Harder They Fall
Budd Schulberg, Movin7 Pictures
Ram6n f. Sender, Seven Red Sundays
Karl Shapiro, Creative Clut
Peter Shaw Recovering American Literature
lames B. Simpson, ed., Veil and Cowl
Tess Slesinger, On BeingTold That Her Second Husband Has Taken
His First Lover, and Other Stories
Red Smith, Red Smith on Baseball
Donald Thomas, Swinburne
B. Traven, The Bridge in the Jungle
B. Traven, The Carreta
B. Traven, The Cotton-Pickers
B. Traven, Ceneral hom the lungle
B. Traven, Covernment
B. Traven, March to the Monteria
B. Traven, The NightVisitor and Other Stories
B. Traven, The Rebellion of the Hanged
B.Traven, Trozas
Anthony Trollope, Trollope the fraveller
lvan Turgenev, Literaty Reminiscences
John Tytell, Ezra Pound
Rex Warner, The Aerodrome
Rebecca West, A Train of Powder
Wilhelm Worringer, Abstraction and Empathy
The Shakespeare Handbooks by Alistair McCallum
Hamlet
King Lear
Macbeth
Romeo and luliet
ilt r illllllllll llllllllllll llill il I I lll
x0000694RV
The Chatham House Version.,,her l'/lddle Eastern Studtes
Used, Very Good