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2.U/
CONFIDENTIAL LIBRARY.
VOLUME XGIV.
C O N T E N T S .
CPs.
Nos.
351(50) to
dated 16.7.30
CP.
351
to
300(50)
10.9.50.
Subject.
Date.
Agricultural Policy - State Assistance for
A l l o t m e n t s f o r U n e m p l o y e d . - Memorandum
by Dr. C A d d i s o n ( M i n i s t e r of A g r i c u l t u r e
and F i s h e r i e s ) .
16.
7.30.
B r i t i s h Relations with T e r r i t o r i e s in the
Middle East.
The General C o n t r o l
of:
R e p o r t "by a S u b - C o m m i t t e e o f t h e C o m m i t t e e
o f I m p e r i a l D e f e n c e on P o l i t i c a l C o n t r o l
i n Arabia. - Covering note by S e c r e t a r y ,
Cabinet.
'
17.
7.30.
A r m i s t i c e Day.
M e m o r a n d u m b y Mr.
C l y n e s (Home S e c r e t a r y ) .
17.
7.30.
17.
7.30.
Palestine.
The G a r r i s o n and R e s p o n s i b i l i t y
f o r c o n t r o l of t h e F o r c e s . - Note by
S e c r e t a r y , C a b i n e t , c o v e r i n g an e x t r a c t
from C I . D . / 2 4 9 t h m e e t i n g and a Report of a
Sub-Committee of t h e Committee of Imperial
Defence.
29.
7.30.
256
G a r r i s o n of
Treasury.
26.
7.30.
257
Iraq.
Treaty with:
Memorandum b y L o r d
P a s s f i e l d ( S e c r e t a r y of S t a t e f o r the
Colonies), with enclosures.
18.
7.30.
258
Leon Trotsky.
Memorandum b y Mr.
(Home S e c r e t a r y ) .
18.
7.30.
259
New H e b r i d e s .
Future Administration
R e p o r t of C a b i n e t Committee.
17.
7.30.
252
253
254
255
260
261
262
Agricultural Policy.
Adamson ( S e c r e t a r y
of
J.R.
Memorandum b y Mr. \y.
State for Scotland).
trie S u d a n .
Report
by
Secretary,
J.R.Clynes
of
P a r l i a m e n t a r y Programme, 1 9 3 0 - 3 1 .
Memorandum
b y Mr. T h o m a s K e n n e d y
(Parliamentary
Secretary, Treasury).
Economic C o n s e q u e n c e s of
of Cabinet Committee.
Disarmament.
Rent R e s t r i c t i o n .
Memorandum b y Mr.
Greenwood ( M i n i s t e r of H e a l t h ) .
1 8
*
'*
3
0
,
Report
28.
7.30.
a2.
7.30.
A.
CP.
263
264
265
266
267
268
Subject.
Date.
Employment of E x - R e g u l a r S o l d i e r s , e t c . ,
u n d e r t h e O f f i c e o f W o r k s . N o t e b y Mr.
P.Snowden (Chancellor of the Exchequer).
;d2.
7.30
Land V a l u a t i o n B i l l .
N o t e b y Mr. p . S n o w d e n
(Chancellor of t h e Exchequer)
covering
draft B i l l .
22.
7.30
I r o n and S t e e l C o n f e r e n c e .
Note by
Mr. J . R . M a c D o n a l d ( P r i m e M i n i s t e r ) .
21.
7.30
The I n d i a n C o n f e r e n c e .
Q u e s t i o n of the p a r
t i c i p a t i o n of t h e O p p o s i t i o n P a r t i e s .
Telegrams between s e c r e t a r y of s t a t e for
I n d i a and t h e V i c e r o y .
a2.
7.30
P r o d u c t i o n of O i l from Coal.
Memorandum
by Lord Thomson, P r e s i d e n t of t h e O i l
Board ( S e c r e t a r y of S t a t e f o r A i r ) .
22.
7.30
F o r e i g n War M e m o r i a l s .
Ceremonies in
connection with:
Memorandum b y Mr.
Henderson (Foreign S e c r e t a r y ) .
269
The K i n g ' s S p e e c h on P r o r o g a t i o n
Parliament, August 1 s t , 1930.
270
271
7.30
S t a t e of Trade.
R e p o r t s by Members o f Board
of T r a d e A d v i s o r y C o u n c i l . C o v e r i n g
memorandum b y M r . W.Graham ( P r e s i d e n t ,
Board of T r a d e ) .
'
25.
7.30
Palestine:
McMahon C o r r e s p o n d e n c e .
Memorandum b y L o r d P a s s f i e l d ( S e c r e t a r y
S t a t e for the C o l o n i e s ) .
25.
7.30
273
B e n g a l C r i m i n a l Law A m e n d m e n t O r d i n a n c e .
Memorandum b y Mr. W. B e n n ( S e c r e t a r y o f
State for India).
276
277
278
7.30
31.
Wheat Q u o t a .
275
-22.
of
272
274
A.
Report
of
Cabinet
of
Committee.
7.30
28.
7.30
25.
7.30
29.
7.30
P o l i t i c a l control in Arabia.
Methods of
s i m p l i f y i n g a n d s p e e d i n g up e x i s t i n g
machinery for:
Comments on R e p o r t of
Committee on:
Memorandum b y Mr. W. B e n n
( S e c r e t a r y of S t a t e f o r I n d i a ) .
28.
7.30
London p a s s e n g e r T r a f f i c .
Co-ordination
Memorandum b y Mr. H. M o r r i s o n ( M i n i s t e r
Transport).
28.
7.30
29.
7.30
India.
The P o l i t i c a l S i t u a t i o n i n t h e f o u r t h
week of J u l y , 1 9 3 0 .
Memorandum b y
Mr. W . B e n n ( s e c r e t a r y o f S t a t e f o r I n d i a ) .
M a t e r n i t y and S p e c i a l i s t S e r v i c e s .
Incidence
of mortality in maternity cases in Scotland.
Memor-andxam b y M r . W . A d a m s o n ( S e c r e t a r y o f
State for Scotland).
of:
of
Palestine.
Comments of H i s M a j e s t y ' s
Government on Report of Permanent Mandates
Commission.
Memorandum b y L o r d P a s s f i e l d
( S e c r e t a r y of S t a t e f o r the C o l o n i e s ) .
Sub
C P .
279
Model T r e a t y
preventing
Cabinet.
;
280
281
282
282A
283
284
285
286
287.
288
289
290
291
292
ject.
Date.
t o s t r e n g t h e n the means of
war.
Memorandum b y S e c r e t a r y ,
'
29.
7.30
Model T r e a t y to s t r e n g t h e n t h e means of
p r e v e n t i n g war.
N o t e b y Mr. A. H e n d e r s o n
( F o r e i g n S e c r e t a r y ) , c o v e r i n g a minute by
Lord C e c i l .
30.
7.30
Tibet.
Question of i n s t r u c t i o n s t o B r i t i s h
Envoy t o Lhasa r e g a r d i n g r e s u m p t i o n of
n e g o t i a t i o n s w i t h China and f a c i l i t i e s
for
s u p p l y o f A r m s t o T i b e t . Memorandum b y
Mr. V/. B e n n ( S e c r e t a r y o f S t a t e f o r I n d i a ) .
28.
7.30
Afghan Government's r e q u e s t f o r a s s i s t a n c e ,
f o r r e c o n s t r u c t i o n and r e - e s t a b l i s h m e n t of
internal order.
Memorandum b y Mr. W.
Benn ( S e c r e t a r y of S t a t e f o r I n d i a ) .
28.
7.30
Agricultural policy.
Draft Statement
c i r c u l a t e d b y D r . C. A d d i s o n ( M i n i s t e r
A g r i c u l t u r e and F i s h e r i e s ) .
30.
7.30
Agricultural policy.
Revised draft
state
men t C o v e r i n g n o t e b y D r . C. A d d i s o n
( M i n i s t e r of A g r i c u l t u r e and F i s h e r i e s ) .
31.
7.30
The P r o b l e m s of B r i t i s h I n d u s t r y .
Memoran
dum b y M a j o r C . R . A t t l e e ( C h a n c e l l o r o f t h e
Duchy of L a n c a s t e r ) .
a9.
7.30
Tariffs.
Further n e g o t i a t i o n s as t o :
M e m o r a n d u m b y Mr. W. Graham ( P r e s i d e n t ,
Board of T r a d e ) .
31.
7.30
Tariff Truce.
R a t i f i c a t i o n of t h e :
Memorandum b y Mr. W. Graham ( p r e s i d e n t ,
Board of T r a d e ) .
30.
7.30
7.
8.30
Bulk purchase of Dominion Produce.
N o t e by
S e c r e t a r y , C a b i n e t , c o v e r i n g memoranda by
I n t e r - D e p a r t m e n t a l C o m m i t t e e on Economic
Questions.
6.
8.30
E x p o r t o f War M a t e r i a l s .
M e m o r a n d u m b y Mr.
W. G r a h a m ( p r e s i d e n t . B o a r d o f T r a d e ) .
7.
8.30
India.
The G e n e r a l p o l i t i c a l S i t u a t i o n .
M e m o r a n d u m b y Mr. W. B e n n ( S e c r e t a r y o f
for India) .
9.
8. 30
22.
8.30
a6.
8.30
^2.
8.30
Export Credits f o r Russia.
Mr. V/. Graham ( p r e s i d e n t ,
of
Memorandum b y
Board of Trade).
State
Imperial Conference, 1930.
Representation
t h e U n i t e d K i n g d o m . Memorandum b y L o r d
P a s s f i e l d ( S e c r e t a r y of S t a t e for the
Colonies).
S t a t e of Trade.
Rbports on:
m e m o r a n d u m b y Mr. W. G r a h a m
of T r a d e ) .
of
Covering
( P r e s i d e n t , Board
Iraq.
Treaty Settlement with:
by Lord P a s s f i e l d ( S e c r e t a r y of
the Colonies).
Memorandum
State for
A
C. P .
293
294
295
296
297
298
^99
300
Subject.
pate.
Unemployment P o l i c y .
M e m o r a n d u m b y Mr.
V. H a r t s h o r n (Lord P r i v y S e a l ) .
18.
8.30
D i s p o s a l of S u r p l u s M u n i t i o n s t o F o r e i g n
Countries.
Memorandum b y Mr. T . S h a w
(Secretary of S t a t e for War).
28.
8.30
M i l i t a r y C o n t r i b u t i o n s by C o l o n i a l Govern
ments.
Memorandum b y L o r d P a s s f i e l d
(Secretary of S t a t e for the C o l o n i e s ) .
28.
8.30
Census, 1931.
J o i n t m e m o r a n d u m b y Mr. W.
Adamson ( S e c r e t a r y o f S t a t e f o r S c o t l a n d )
a n d Mr. A. G r e e n w o o d ( M i n i s t e r o f H e a l t h ) .
3.
9.30
C o - o r d i n a t i o n of London P a s s e n g e r T r a n s p o r t .
Memorandum b y Mr. H. M o r r i s o n ( M i n i s t e r o f
Transport).
8.
9.30
Imperial C o n f e r e n c e , 1 9 3 0 , Agenda.
Memorandum
b y Mr. J . H . T h o m a s ( S e c r e t a r y o f S t a t e f o r
Dominion A f f a i r s ) .
-.
9.30
Imperial Conference, 1930, Procedure.
dum b y Mr. J . H . T h o m a s ( S e c r e t a r y o f
f o r Dominion A f f a i r s ) .
-.
9.30
10.
9.30
Maternal Mortality.
Greenwood ( M i n i s t e r
Memoran
State
Memorandum b y Mr.
of Health).
A.
( T H I S DOCUMENT I S THE PROPERTY CF H I S BRITANNIC MAJESTY S GOVERNMENT).
f
SECRET
3.P.251/50
CABINET.
AGRICULTURAL POLICY - STATE
'
'
"
"
A "
'"
"
1 1
' "'
" ""
'
'i
ASSISTANCE
'
1 , 1 , 1 , 1
-
FOR ALLQTI£ENTS FOR UNEMPLOYED.
Memorandum b y t h e M i n i s t e r
My c o l l e a g u e s
statement
given below
which has
not
probable
cost
yet
of
on A g r i c u l t u r a l
allotment
1.
will,
allotment
out
of
allotment
for
the
The
for
allotment
provision
districts
State
of
assistance
up any d e f i c i e n c y
due t o
w o r k e r may b e u n a b l e
to
the
estimate,
the
the
unemployed.
the
provision
of
Authorities.
of
CP.234
State
i.e.
plots
duty of
Authorities
gardens.
(30),
of
10
providing
at
I
that
pay an economic
the
poles
these
suggested,
present
In
I
towards
responsible
distressed
Yfould b e m a d e a v a i l a b l e
the fact
of
i n my m e m o r a n d u m
unemployed should,
Local
in
for
from t h e
gardens,
unemployed.
gardens
IV.
Fisheries.
Treasury,
contained
for
assistance
be undertaken by the
the
interested
- provided by Local
Appendix
and
a provisional
(C.P.234(30))
and a l l o t m e n t s
recommended f i n a n c i a l
the
be
b-oan d i s c u s s e d w i t h t h e
I n paragraph 5 of
in area for
think,
setting
policy
gardens
provision
Agriculture
certain proposals
Allotment Gardens
the
I
of
to
unemployed
rent.
make
*
On t h e
allotments
that
the
is,
will
he
enough
of
supply,
acre
about
to be
land
with
paths,
Loan
Outgoings,
acres
under t h i s
of
scheme,
plots,
I
estimate
follows:-
fencing,
water)
)
a t £ 2 0 0 an )
)
)
etc.,
charges
repayment
1,000
15,000
as
inclusive.
Annual
that
provided
for
expenditure
Cost
assumption
£200,000.
including
(Interest
5%)
Management,
£10,500
voids,etc.,
say
£2,000
£12,500
Rent
at
say 8 / 2d.
Annual
1,000
Loss
is
it
£6,000
whole
acquired
be
and t h e
the
the
Exchequer
(about
a week)
two y e a r s ,
end o f
plot
when t h e
acres
If
per
£6,500
assumed t h a t
local
financial
the
programme
authorities
year,
the
claim
cost
to
would be
takes
after
the
1931-32
1932-33
1933-34
and o n
....
....£3,250
....£6,500
wards.
As r e g a r d s
tenants
to
purchase
t h i s may b e
credit
seeds,
estimated
£30,000
to be r e p a i d ,
rent.
It
sura m i g h t
is
to
prove
be
assistance
manures,
say,
expected
to be
and
at £2 per p l o t ,
in,
to
that
the
tools,
or
two y e a r s
with
one h a l f
irrecoverable,
owing
of
to
M l
the
this
removals,
lack of
contribution
to
means,
loss
would
The a d v a n c e s
£3,75fl
in
1934-35.
succeeding
would
b*:
. Allotments
-
would
provided
estimate
the
£157,050
case
the
Exchequer
£15,000.
fall
due
for
in 1933-34,
be r e p a i d
payment
and a s
as
to
to £3,750
by t h e Exohoquer
irrecoverable
by
1953-.34
.
.
1934-35
.
.
1935-36
.
.
amounts t o
in
be
in
the
provided
the
by
creation
in
area
for
purchased
that
Ihe
present
against
.
£3,750
£7,500
.
£3,750
Minister.
5
on land
during
the
In paragraph
an a c r e
1,500
I
Any l o s s
in which
suggested
half
£7,500
and
be
would
1932-33,
year,
etc.,
total
and
(v)
of
the
the
at
Appendix
Minister
of
unemployed.
£200
per
capital
the n e x t
which rents
II
allotments
and 500
(including
financial
in
$CP.234
On t h e
acre
cost
of
a normal
years,
(30)
I
averaging
basis
of
on l a n d
leased,
equipment)
would
year would
bo
amount
to
£3,750.
Loans
at
£10 per
wouM
for
working
man w o u l d
I anticipate
require
prove
to
capital
a
be
further
of.Agriculture
16th
July,
1930.
and
these
Fisheries,
unemployed
£ 2 0 , 0 0 ^ some
irrecoverable.
C .A.
Ministry
for
of
workers
which
( T H I S DOCUMdHT I S 'IHE PROPERTY OIF H I S BBITAwNIO MJUESTf
S GOVj.:HBM.3X4'J?)
1
S .H) 0 g
C.-P-
EJP.
252
COPY HO.
(20)
C A B I
....
GMI&3AL
-
COHTROL Of
E I.
B R I T I S H ' RELATIONS WITH
EAST 7 " '
? £SRlfoSlTS "IS x7iE"MTDDls
The
Committee
cf
accompanying
Imperial
recommendations
existing
machinery
simplified
and
considered
by t h e
on
July
2.
In
Report
Defence
" t o make
held
I
for
as
up'
to
1930
a Sub-Committee
was
set
up
the methods
control
of
Imperial
(CJ.1).
in
March
Arabia
Ho.
249th
1929
can
at
the
the
174-D)
Defence
Minutes
of
by w h i c h
in
(0.1.1). £a oar
7
Committee
14th,
that
political
speeded
by
be
was
a
meeting
Meeting,
Minute
3) .
pointed
out
questions
how t h i s
the
course
that
of
Part
policy,
question
of
II
the
of
and
the
that
should
be
discussion
Report
it
Prime
raised
for
dealt
the
the
Minister
very
controversial
Cabinet
to
decide
with.
y
3.
approve
the
The
generally
Report,
question
control
the
Committee
of
of
Middle
but
as
the
of
East
Defence
recdumondations
regards
transferring
our
Imperial
relations
should
be
Part
to
the
with
II
contained
"to
reserved
in
recommend
foreign
the
agreed
whole
for
to
Part
that
I
the
Office
the
of
territories
the
consideration
of
general
by
the
Cab i n f a t "
(3d.)
M.P.A.
Secretary
2,
to
HArlKiiY,
the
Cabinet.
Whitehall Gardens, S.W.1,
July 17th, 1930.
These rocommenuations are
s u b j e c t t o o o n f i miat1oa
.
in
draft
form
and
are
in
THIS DOCUMENT IS THE PROPERTY OF HIS BRITANNIC MAJESTY'8 GOVERNMENT.
Printed
for the Committee
of Imperial
Defence.
December
SECRET.
1929.
Copy No.
68
174-D.
(Also P.G. (Sub.)
18.)
COMMITTEE
OF
IMPERIAL
PERSIAN
(Previous
G.I.D. Papers
DEFENCE.
GULF.
Nos. 1 6 9 - D , 1 7 0 - D and
171-D.)
Report by a Sub-Committee on Political Control.
2, Whitehall
Gardens, S.W.
December 12, 1929.
(20290)
1,
9
COMPOSITION
AND TERMS OF
REFERENCE.
I N accordance w i t h t h e C o n c l u s i o n s t a k e n by t h e P e r s i a n G u l f S u b - C o m m i t t e e
on t h e 18th M a r c h , .1929 ( M i n u t e s P . G . , 9th M e e t i n g , Conclusion 1 ( / ) ) , a
S u b - C o m m i t t e e w a s set u p , composed a s follows :—
COMPOSITION.
Sir W a r r e n Fisher, G . C . B . , G . C . V . O . , Secretary to the Treasury
[Chairman).
L o r d M o n t e a g l e , C . M . G . , M . V . O . , Counsellor, F o r e i g n Office.
S i r J o h n S h u c k b u r g h , K . C . M . G . , C . B . , A s s i s t a n t U n d e r - S e c r e t a r y of State..
Colonial Office.
M r . L . D . W a k e l y , C . B . , A s s i s t a n t U n d e r - S e c r e t a r y of S t a t e , I n d i a Office.
M r . J . G. L a i t h w a i t e , P r i n c i p a l , I n d i a Office.
C a p t a i n R. M . B e l l a i r s , C . M . G . , D i r e c t o r of P l a n s D i v i s i o n , A d m i r a l t y .
*Colonel K . D . M u r r a y , D . S . O . , G e n e r a l Staff, W a r Office:
A i r Commodore C. L . N N e w a l l , C . B . , C . M . G . , C . B . E . , D e p u t y Chief of A i r
Staff, A i r M i n i s t r y .
M r . J . A . Webster, C.B., D . S . O . , P r i n c i p a l Assistant Secretary, A i r Ministry.
L i e u t e n a n t - C o l o n e l BE. L . I s m a y , D . S . O . , A s s i s t a n t S e c r e t a r y , C o m m i t t e e
of I m p e r i a l Defence
(Secretary).
* Colonel M u r r a y succeeded Colonel G. H . R o g e r s , G e n e r a l Staff, W a r Office,
w i t h effect from t h e 1st A u g u s t , 1929.
T E R M S OF R E F E R E N C E .
' ' T o m a k e recommendations? a s to t h e m e t h o d s by w h i c h t h e e x i s t i n g m a c h i n e r y
for p o l i t i c a l control in A r a b i a c a n be simplified a n d speeded u p . "
REPORT.
FOREWORD.
W e u n d e r s t a n d t h a t t h e necessity for s i m p l i f y i n g a n d s p e e d i n g u p t h e e x i s t i n g
m a c h i n e r y for p o l i t i c a l c o n t r o l i n A r a b i a h a s a r i s e n p r i m a r i l y o u t of t h e c h a n g e d
c o n d i t i o n s t h a t h a v e been b r o u g h t a b o u t by t h e e x t e n d e d u s e of a i r p o w e r i n g e n e r a l ,
a n d t h e p r o j e c t e d a i r r o u t e a l o n g t h e A r a b i a n l i t t o r a l of t h e G u l f i n p a r t i c u l a r .
W e h a v e t h e r e f o r e e x a m i n e d t h e p r o b l e m w i t h s p e c i a l reference t o t h e s e n e w f a c t o r s .
2. O u r r e p o r t i s d i v i d e d i n t o t w o p a r t s . P a r t I deals w i t h p r o p o s i t i o n s w h i c h
q u i t e definitely lie w i t h i n t h e scope of o u r t e r m s of reference, a n d is s i g n e d b y t h e
whole S u b - C o m m i t t e e . P a r t I I d e a l s w i t h a p r o p o s i t i o n w h i c h , w h i l e o u t s i d e t h e
l i t e r a l scope of o u r t e r m s of r e f e r e n c e , c a n n o t be divorced from t h e i r s u b j e c t - m a t t e r ;
a n d a p o r t i o n of t h e S u b - C o m m i t t e e feel t h a t i t should be v e n t i l a t e d . C o n s e q u e n t l y
P a r t I I is s i g n e d only by t h e C h a i r m a n , a n d t h e r e p r e s e n t a t i v e s of t h e A d m i r a l t y ,
W a r Office, a n d A i r M i n i s t r y .
PART
Existing
Political
I.
Arrangements
in the Persian
Gulf.
1. A t t h e o u t s e t of o u r i n q u i r y w e t h o u g h t i t e s s e n t i a l to o b t a i n a p r e c i s e
definition of t h e e x i s t i n g r e s p o n s i b i l i t i e s of t h e v a r i o u s D e p a r t m e n t s concerned i n
P e r s i a n G u l f q u e s t i o n s . T h e n o t e on t h i s s u b j e c t w h i c h w a s p r e p a r e d a t our r e q u e s t ,
a n d h a s been a c c e p t e d by all concerned, i s a t t a c h e d a s a n A p p e n d i x t o t h i s R e p o r t .
The
Setting
Up of Standing
Co-ordinating
Committees.
2. T h i s n o t e shows h o w l a r g e is t h e n u m b e r of G o v e r n m e n t D e p a r t m e n t s w h i c h
have s o m e t i m e s to be consulted before a decision c a n be r e a c h e d over q u e s t i o n s t h a t
arise in the Gulf and adjacent territories. I n the past this consultation h a s taken
t h e form e i t h e r of I n t e r - D e p a r t m e n t a l c o r r e s p o n d e n c e , or of i n f o r m a l I n t e r D e p a r t m e n t a l conference.
B u t , to j u d g e from t h e i n s t a n c e s of d e l a y w h i c h a r e
q u o t e d in t h e A i r Staff M e m o r a n d u m on " t h e use of a i r p o w e r a s i l l u s t r a t e d by t h e
recent o p e r a t i o n s i n A r a b i a " ( E n c l o s u r e t o P a p e r N o . P . G . 2) a n d o t h e r i n s t a n c e s
l a i d before t h e p r e s e n t C o m m i t t e e , n e i t h e r of t h e s e h a s p r o v e d a l t o g e t h e r
s a t i s f a c t o r y ; a n d it a p p e a r s t h a t i t m i g h t be of c o n s i d e r a b l e a d v a n t a g e , as r e d u c i n g
t h e chances of confusion or d e l a y , to m a k e some s y s t e m a t i c a r r a n g e m e n t s f o r
co-ordination.
3. W e t h e r e f o r e r e c o m m e n d t h a t t w o S t a n d i n g C o - o r d i n a t i n g C o m m i t t e e s of
t h e C o m m i t t e e of I m p e r i a l Defence, t h e one m i n i s t e r i a l a n d t h e o t h e r official, s h o u l d
be set u p to d e a l w i t h such M i d d l e E a s t q u e s t i o n s as concern t w o or m o r e
Departments.
4.
T h e c o m p o s i t i o n t h a t w e s u g g e s t for t h e m i n i s t e r i a l C o m m i t t e e is :—
The
The
The
The
The
The
5.
S e c r e t a r y of S t a t e for F o r e i g n Affairs.
S e c r e t a r y of S t a t e for t h e Colonies.
S e c r e t a r y of S t a t e for W a r .
S e c r e t a r y of S t a t e for I n d i a .
S e c r e t a r y of S t a t e for A i r .
F i r s t L o r d of t h e A d m i r a l t y ; w i t h a S e c r e t a r y from t h e C o m m i t t e e of
I m p e r i a l Defence Secretariat.
T h e c o m p o s i t i o n t h a t w e s u g g e s t for t h e official C o m m i t t e e is a s follows : —
C h a i r m a n : T o be n o m i n a t e d by t h e C o l o n i a l Office.
M e m b e r s : R e p r e s e n t a t i v e s of t h e F o r e i g n Office, W a r Office, I n d i a Office, A i r
M i n i s t r y a n d A d m i r a l t y ; w i t h a S e c r e t a r y f r o m t h e C o m m i t t e e of I m p e r i a l
Defence Secretariat.
[20290]
6. A s r e g a r d s p r o c e d u r e , w e t h i n k t h a t m e e t i n g s s h o u l d be s u m m o n e d only a s
a n d w h e n r e q u i r e d by o n e or o t h e r of t h e i n t e r e s t e d D e p a r t m e n t s , for t h e e x a m i n a
t i o n of a specific p r o b l e m (or problems), t h e i n i t i a t i v e i n e a c h case b e i n g t a k e n by
t h e i n t e r e s t e d D e p a r t m e n t c o m m u n i c a t i n g t h e i r r e q u i r e m e n t s to t h e S e c r e t a r y , w h o
w o u l d t h e n p l a c e h i m s e l f in c o m m u n i c a t i o n w i t h t h e C h a i r m a n .
7. F u r t h e r , w e c o n s i d e r t h a t t h e m i n i s t e r i a l C o m m i t t e e n e e d not, g e n e r a l l y
s p e a k i n g , be t r o u b l e d t o assemble e x c e p t (i) to d e a l w i t h q u e s t i o n s u p o n w h i c h t h e
official C o m m i t t e e fail t o r e a c h a g r e e m e n t ; or (ii) to r e c o n s i d e r r e c o m m e n d a t i o n s of
t h e official C o m m i t t e e , w h i c h a n y of t h e M i n i s t e r s concerned m a y find themselves
u n a b l e to a p p r o v e .
References
to London
by the Local
Authorities.
8. A n o t h e r d i r e c t i o n i n w h i c h t h e e x i s t i n g m a c h i n e r y m i g h t be r e n d e r e d less
slow a n d cumbrous w o u l d be t o r e d u c e t h e n u m b e r of q u e s t i o n s w h i c h t h e A u t h o r i t i e s
on t h e spot a r e r e q u i r e d to r e f e r H o m e . T h i s m i g h t be done in t w o ways, w h i c h
m u t u a l l y r e a c t on e a c h o t h e r : first by g i v i n g local A u t h o r i t i e s t h e fullest
d i s c r e t i o n a r y p o w e r s t h a t c i r c u m s t a n c e s p e r m i t ; a n d , secondly, by a r r a n g i n g for t h e
closest co-operation between t h e m .
The Discretionary
Powers
of the Local
Authorities.
9. A s r e g a r d s t h e first, we a p p r e c i a t e t h a t , g e n e r a l l y s p e a k i n g , i t is
i m p r a c t i c a b l e to l a y d o w n h a r d - a n d - f a s t r u l e s , a n d t h a t e a c h case m u s t be c o n s i d e r e d
o n i t s m e r i t s . B u t t h e p a r t i c u l a r q u e s t i o n of t h e e s t a b l i s h m e n t of t h e a i r r o u t e a l o n g
t h e A r a b i a n l i t t o r a l of t h e G-ulf f a l l s i n r a t h e r a s p e c i a l c a t e g o r y ; a n d w e t h i n k t h a t
t h e local a u t h o r i t i e s responsible for t h i s p r o j e c t s h o u l d be given i n s t r u c t i o n s w h i c h
allow t h e m t h e g r e a t e s t l a t i t u d e . W e t h e r e f o r e s u g g e s t t h a t , if t h i s h a s n o t a l r e a d y
been done, t h e R e s i d e n t i n t h e P e r s i a n G u l f s h o u l d be g i v e n definite i n s t r u c t i o n s , i n
t h e l i g h t of t h e decision* t a k e n by t h e C a b i n e t w h e n t h e P e r s i a n Gulf S u b - C o m m i t t e e
R e p o r t w a s u n d e r c o n s i d e r a t i o n , t h a t i t i s t h e policy of H i s M a j e s t y ' s G o v e r n m e n t
t o establish a n a i r r o u t e a l o n g t h e A r a b i a n l i t t o r a l a s economically a n d a s
e x p e d i t i o u s l y as possible, a n d t h a t h e s h o u l d c o n t i n u e , i n d i r e c t c o n s u l t a t i o n w i t h
t h e A i r Officer C o m m a n d i n g i n I r a q , t o t a k e s u c h a d m i n i s t r a t i v e a n d e x e c u t i v e
a c t i o n locally as m a y be r e q u i r e d . H e m i g h t be t o l d t h a t h e should r e p o r t p r o g r e s s
p e r i o d i c a l l y to L o n d o n , b u t t h a t r e f e r e n c e s on a d m i n i s t r a t i v e or e x e c u t i v e m a t t e r s ,
save w h e r e q u e s t i o n s of policy a r e concerned, s h o u l d be t h e exception.
The Centralisation
of Questions
affecting
the Arabian
Air
Route.
10. A n d t h e r e is a n o t h e r p o i n t w h i c h a r i s e s o u t of t h i s r e c o m m e n d a t i o n .
A l t h o u g h H i s M a j e s t y ' s G o v e r n m e n t h a v e d e c i d e d t h a t t h e e s t a b l i s h m e n t of a n a i r
r o u t e a l o n g t h e A r a b i a n l i t t o r a l is to be p r o s e c u t e d a s a m a t t e r of h i g h s t r a t e g i c a l
importance, the A i r Ministry are placed a t a disadvantage in carrying out this work
i n t h a t , on i t s p o l i t i c a l side, i t does n o t a s a whole concern a n y one D e p a r t m e n t i n
p a r t i c u l a r . U n d e r the e x i s t i n g policy of H i s M a j e s t y ' s G o v e r n m e n t , t h e r e s p o n s i
bilities of t h e I n d i a Office a n d t h e G o v e r n m e n t of I n d i a a r e confined t o t h e
m a i n t e n a n c e of m a r i t i m e peace i n t h e G u l f a n d to t h e coastal a r e a of t h e A r a b
littoral; and H i s Majesty's Government have not in the past contemplated any
e x t e n s i o n of these r e s p o n s i b i l i t i e s i n t o t h e h i n t e r l a n d , w h i c h h a s n o w a s s u m e d
i m m e d i a t e i m p o r t a n c e i n view of t h e a l i g n m e n t of t h e a i r r o u t e . A n y q u e s t i o n of
t h e extension of B r i t i s h r e s p o n s i b i l i t i e s i n t o t h e h i n t e r l a n d m a y r a i s e l a r g e q u e s t i o n s
of policy, w h i c h w o u l d , of course, h a v e to be c o n s i d e r e d o n t h e i r m e r i t s . A g a i n , t h e
a i r r o u t e is of i n t e r e s t t o t h e C o l o n i a l Office only i n so f a r a s i t m i g h t r e a c t o n t h e i r
r e s p o n s i b i l i t i e s i n I r a q a n d P a l e s t i n e , a n d , i n r e s p e c t of t h e H a s a Section, on o u r
r e l a t i o n s w i t h I b n S a u d . I n t h e s e c i r c u m s t a n c e s , t h e A i r M i n i s t r y u r g e t h a t , so f a r
a s is possible, all q u e s t i o n s c o n c e r n i n g t h e a i r r o u t e s h o u l d be d e a l t w i t h by t h e s a m e
D e p a r t m e n t i n L o n d o n . T h e business m e r i t s of s u c h a n a r r a n g e m e n t a r e incon
t e s t a b l e . T h i s q u e s t i o n is f u r t h e r developed i n P a r t I I to t h i s R e p o r t , w h i c h ,
however, is s i g n e d only b y a p o r t i o n of t h e C o m m i t t e e .
* Cabinet 49 (28), Conclusion 1, circulated as C.I.D. Paper No. 170-D.
Co-operation
between
the Resident in the Persian
Commanding
in Iraq.
Gulf
and the Air
Officer
11. T u r n i n g n o w to t h e q u e s t i o n of closer c o - o p e r a t i o n b e t w e e n t h e local
a u t h o r i t i e s in t h e P e r s i a n G u l f regions, w e h a v e been g i v e n to u n d e r s t a n d t h a t ,
g e n e r a l l y s p e a k i n g , p r e s e n t a r r a n g e m e n t s m a y be r e g a r d e d as s a t i s f a c t o r y .
But
h e r e a g a i n , we t h i n k t h a t t h e p a r t i c u l a r q u e s t i o n of t h e r e l a t i o n s b e t w e e n t h e
R e s i d e n t i n t h e P e r s i a n G u l f a n d t h e A i r Officer C o m m a n d i n g in I r a q i n r e s p e c t of
t h e use of A i r P o w e r in t h e G u l f a n d i t s v i c i n i t y m e r i t s s p e c i a l a t t e n t i o n .
We
s u g g e s t t h a t t h e R e s i d e n t , P e r s i a n Gulf, should, s u b j e c t t o g e n e r a l c o n d i t i o n s t o be
a r r a n g e d i n L o n d o n , be e m p o w e r e d to a p p l y d i r e c t t o t h e A i r Officer C o m m a n d i n g
i n I r a q for a i r a s s i s t a n c e i n connection w i t h A r a b m a t t e r s i n t h e s a m e w a y a s he
now a p p l i e s to t h e S e n i o r N a v a l Officer, P e r s i a n Gulf, for n a v a l a s s i s t a n c e ; i t being,
of course, u n d e r s t o o d t h a t t h e d e s p a t c h of a i r c r a f t from I r a q , for e m p l o y m e n t i n
t h e Gulf, m u s t a t a l l t i m e s be c o n d i t i o n a l u p o n t h e s i t u a t i o n in I r a q .
12. F u r t h e r , w e t h i n k t h a t t h e R e s i d e n t , P e r s i a n Gulf, s h o u l d be e n c o u r a g e d
to m a k e use of such f a c i l i t i e s a s t h e A i r Officer C o m m a n d i n g i n I r a q can m a k e
a v a i l a b l e for h i s t r a n s p o r t a t i o n by a i r on h i s v i s i t s t o t h e A r a b i a n l i t t o r a l .
The Appointment
of Resident
in the Persian
Gulf.
13. H a v i n g r e g a r d t o t h e n e w f a c t o r s i n t h e G u l f s i t u a t i o n , a n d t o t h e
increased, r e s p o n s i b i l i t y on t h e A r a b coast t h a t falls t o t h e R e s i d e n t i n t h e P e r s i a n
G u l f a s a result, w e t h o u g h t i t r i g h t to e x a m i n e t h e c i r c u m s t a n c e s of t h a t a p p o i n t
m e n t i n some d e t a i l W e a p p r e c i a t e t h a t i t is n o t for u s to r e c o m m e n d a n y c h a n g e i n
e x i s t i n g a r r a n g e m e n t s , b u t w e feel t h a t , h a v i n g r e g a r d t o r e c e n t p o l i t i c a l develop
m e n t s on t h e P e r s i a n side, a n d t h e c o n t e m p l a t e d e s t a b l i s h m e n t of a n a i r r o u t e on
t h e A r a b i a n side of t h e Gulf, w e would n o t be justified in o m i t t i n g t o p o i n t o u t t h a t ,
i n c e r t a i n respects, these a r r a n g e m e n t s d o not a p p e a r a l t o g e t h e r a p p r o p r i a t e or
adequate to present conditions.
14. U n d e r e x i s t i n g a r r a n g e m e n t s t h e R e s i d e n t i n t h e P e r s i a n G u l f also
p e r f o r m s t h e d u t i e s of C o n s u l - G e n e r a l f o r S o u t h P e r s i a . W e a r e a w a r e t h a t t h e
P e r s i a n G u l f C o m m i t t e e h a v e themselves g i v e n serious c o n s i d e r a t i o n t o t h e q u e s t i o n
of s e p a r a t i n g these a p p o i n t m e n t s , a n d of r e m o v i n g t h e R e s i d e n c y from B u s h i r e (in
P e r s i a ) o n t h e g r o u n d s t h a t t h i s w o u l d be v e r y a c c e p t a b l e t o t h e P e r s i a n G o v e r n m e n t ,
a n d m i g h t serve a s a u s e f u l b a r g a i n i n g c o u n t e r i n t h e c u r r e n t n e g o t i a t i o n s a t T e h r a n .
B u t t h e r e a r e p r a c t i c a l a s w e l l a s d i p l o m a t i c c o n s i d e r a t i o n s t o be t a k e n i n t o a c c o u n t ,
in t h a t t h e i n c r e a s e d r e s p o n s i b i l i t i e s of t h e R e s i d e n t i n t h e P e r s i a n Gulf, a s such,
r e n d e r i t d e s i r a b l e t h a t h e should be able t o devote h i s t i m e a n d a t t e n t i o n p r i m a r i l y
t o t h e A r a b l i t t o r a l . W e suggest, t h i s b e i n g so, t h a t , if c i r c u m s t a n c e s p e r m i t , he
should be l o c a t e d " o n h i s b e a t , " i n s t e a d of on t h e o p p o s i t e s i d e of t h e Gulf. W e
u n d e r s t a n d t h a t t h e w h o l e question, i n c l u d i n g t h a t of a site, is u n d e r a c t i v e
consideration.
15. A n d t h e r e a r e o t h e r f e a t u r e s i n c o n n e c t i o n w i t h t h e a p p o i n t m e n t of
Resident to which we desire to d r a w attention. A s things now stand, the appoint
m e n t lies exclusively i n t h e h a n d s of t h e G o v e r n m e n t of I n d i a ( t h o u g h w e u n d e r s t a n d
t h a t , in p r a c t i c e , t h e M i n i s t e r a t T e h r a n is c o n s u l t e d before a n a p p o i n t m e n t is m a d e ) ,
a n d is filled from t h e c a d r e of t h e I n d i a n P o l i t i c a l Service. A l t h o u g h i t is o n e of
t h e t e n o r eleven " f i r s t - c l a s s " a p p o i n t m e n t s i n t h a t Service, i t is, w e u n d e r s t a n d ,
p r o b a b l y t h e least p o p u l a r . I t s e m o l u m e n t s a r e f o u n d by t h e G o v e r n m e n t of I n d i a
a n d t h e F o r e i g n Office i n e q u a l shares.
16. T h e recent a s s e r t i o n of P e r s i a n a u t h o r i t y in t h e Gulf, t h e g r e a t i m p e r i a l
i n i p o r t a n c e of t h e o r g a n i s a t i o n a n d m a i n t e n a n c e of t h e a i r r o u t e a l o n g t h e A r a b
l i t t o r a l , a n d t h e c o n s i d e r a b l e p o l i t i c a l issues to w h i c h i t s e s t a b l i s h m e n t m a y give
rise, m a k e it d e s i r a b l e t h a t t h e post of R e s i d e n t i n t h e G u l f should be e n t r u s t e d
only t o t h e very best m e n a v a i l a b l e . I t is for c o n s i d e r a t i o n in these c i r c u m s t a n c e s ,
w h e t h e r t h e a p p o i n t m e n t o u g h t n o t to be m a d e m o r e a t t r a c t i v e from t h e p o i n t of
view of p r e s t i g e a n d r e m u n e r a t i o n . T h e q u e s t i o n s w h e t h e r t h e field of selection
should be e x t e n d e d beyond t h e p r e s e n t r e s t r i c t e d l i m i t s , a n d w h e t h e r t h e i m p e r i a l
G o v e r n m e n t should h a v e a g r e a t e r say in t h e a p p o i n t m e n t , a l s o m e r i t c o n s i d e r a t i o n .
SUMMARY OF
17.
RECOMMENDATIONS
T o sum u p , o u r u n a n i m o u s conclusions a r e t h e s e :—
(a.) T w o S t a n d i n g C o - o r d i n a t i n g C o m m i t t e e s of t h e C o m m i t t e e of I m p e r i a l
Defence, t h e one m i n i s t e r i a l a n d t h e o t h e r official, should be set u p t o
deal w i t h s u c h M i d d l e E a s t q u e s t i o n s as concern t w o or m o r e
D e p a r t m e n t s ( p a r a g r a p h 3).
(b.) T h e composition of t h e m i n i s t e r i a l S u b - C o m m i t t e e should be :—
T h e S e c r e t a r y of S t a t e for F o r e i g n A f f a i r s .
T h e S e c r e t a r y of S t a t e for t h e Colonies.
T h e S e c r e t a r y of S t a t e for W a r .
T h e S e c r e t a r y of S t a t e for I n d i a .
T h e S e c r e t a r y of S t a t e for A i r .
T h e F i r s t L o r d of t h e A d m i r a l t y ; w i t h a S e c r e t a r y f r o m
C o m m i t t e e of I m p e r i a l D e f e n c e S e c r e t a r i a t ( p a r a g r a p h 4).
the
(c.) T h e composition of t h e official S u b - C o m m i t t e e should be :—
C h a i r m a n : T o be n o m i n a t e d by t h e Colonial Office.
M e m b e r s : R e p r e s e n t a t i v e s of t h e F o r e i g n Office, W a r Office, I n d i a
Office, A i r M i n i s t r y a n d A d m i r a l t y ; w i t h a S e c r e t a r y f r o m t h e
C o m m i t t e e of I m p e r i a l D e f e n c e S e c r e t a r i a t ( p a r a g r a p h 5).
(d.) M e e t i n g s of t h e above C o m m i t t e e s s h o u l d be s u m m o n e d only a s a n d w h e n
r e q u i r e d by one or o t h e r of t h e i n t e r e s t e d D e p a r t m e n t s for t h e e x a m i n a
t i o n of a specific p r o b l e m (or p r o b l e m s ) .
Further, the ministerial
C o m m i t t e e need not, g e n e r a l l y s p e a k i n g , be t r o u b l e d t o assemble, e x c e p t —
(i) to deal w i t h q u e s t i o n s u p o n w h i c h t h e official C o m m i t t e e f a i l t o r e a c h
a g r e e m e n t ; or
(ii) to r e c o n s i d e r r e c o m m e n d a t i o n s of t h e official C o m m i t t e e w h i c h a n y
M i n i s t e r concerned finds himself u n a b l e t o a p p r o v e ( p a r a g r a p h s
6 a n d 7).
(e.) L o c a l A u t h o r i t i e s should be given t h e g r e a t e s t possible l a t i t u d e o n a l l
questions, p a r t i c u l a r l y those r e l a t i n g to t h e e s t a b l i s h m e n t a n d m a i n
t e n a n c e of t h e a i r r o u t e ( p a r a g r a p h s 9 a n d 10).
(/.) I t would be of g r e a t a d v a n t a g e t o t h e A i r M i n i s t r y if a l l q u e s t i o n s con
c e r n i n g t h e a i r r o u t e w e r e d e a l t w i t h by t h e same D e p a r t m e n t i n L o n d o n
( p a r a g r a p h 10).
(g.) T h e r e should be t h e closest c o - o p e r a t i o n b e t w e e n t h e R e s i d e n t i n t h e P e r s i a n
Gulf a n d t h e A i r Officer c o m m a n d i n g i n I r a q . T h e f o r m e r s h o u l d —
(i) be e m p o w e r e d to a p p l y d i r e c t t o t h e l a t t e r for a i r a s s i s t a n c e ; a n d
(ii) m a k e as m u c h use a s possible of such f a c i l i t i e s for h i s t r a n s p o r t a t i o n
by a i r a s t h e A i r Officer c o m m a n d i n g in I r a q can m a k e a v a i l a b l e
( p a r a g r a p h s 11 a n d 12).
(h.) T h e R e s i d e n t , P e r s i a n Gulf, should, i n view of the g r o w i n g i m p o r t a n c e of
t h e A r a b l i t t o r a l , h a v e h i s h e a d q u a r t e r s , if possible, on t h e A r a b , a n d
n o t t h e P e r s i a n , side of t h e Gulf ( p a r a g r a p h 14).
(i.) C o n s i d e r a t i o n m i g h t , w i t h a d v a n t a g e , be g i v e n t o t h e f o l l o w i n g q u e s t i o n s
i n r e g a r d t o t h e a p p o i n t m e n t of t h e R e s i d e n t i n t h e P e r s i a n Gulf
( p a r a g r a p h s 15 a n d 16) : —
(i.) S h o u l d t h e a p p o i n t m e n t be m a d e m o r e a t t r a c t i v e f r o m the p o i n t o f
v i e w of p r e s t i g e a n d r e m u n e r a t i o n ?
(ii.) S h o u l d t h e field of selection be e x t e n d e d beyond i t s p r e s e n t r e s t r i c t e d
limits ?
(iii.) S h o u l d t h e I m p e r i a l
appointment ?
Government
(Signed)
(Signed)
H . L . ISMAY
(Secretary).
have
a greater
say i n t h e
N. F. W A R R E N F I S H E R .
MONTEAGLE.
J. E. SHUCKBURGH,
L. D . W A K E L Y .
J . G. L A I T H W A I T E .
ROGER M. BELLAIRS,
R.N.
Captain,
K. D . M U R R A Y ,
Colonel, General
Staff.
C. L . N E W A L L ,
Air
Commodore.
J. A. WEBSTER.
PART
II.
The Possibility
of Transferring
to the Foreign Office the General
Our Relations
with the Whole of the Territories
in the Middle
Control
East.
of
1. T h e r e c o m m e n d a t i o n s s u m m a r i s e d i n t h e c o n c l u d i n g p a r a g r a p h of P a r t 1
above will u n d o u b t e d l y t e n d t o simplify a n d speed u p t h e e x i s t i n g m a c h i n e r y for
political c o n t r o l i n A r a b i a , b u t those of the S u b - C o m m i t t e e who h a v e signed t h i s
Second P a r t of t h e R e p o r t feel s t r o n g l y t h a t o u r difficulties c a n n o t be s a t i s f a c t o r i l y
resolved save by a r a d i c a l c h a n g e i n the m a c h i n e r y itself. I n these c i r c u m s t a n c e s ,
we t h i n k t h a t we a r e justified in i n v i t i n g a t t e n t i o n to w h a t a p p e a r s to u s to be a
possible solution of t h e trouble, a n d of a s s e m b l i n g t h e a r g u m e n t s for a n d a g a i n s t i t s
adoption.
2 . I t will be g e n e r a l l y a g r e e d t h a t t h e most effective m e t h o d of o b v i a t i n g over
l a p p i n g of functions, conflicts of d e p a r t m e n t a l o p i n i o n , a n d consequent delays in
r e a c h i n g decisions w o u l d be, if p r a c t i c a b l e , to e n t r u s t t h e g e n e r a l control of our
r e l a t i o n s , w h e t h e r a d m i n i s t r a t i v e or political, w i t h t h e whole of t h e t e r r i t o r i e s i n the
M i d d l e E a s t i n w h i c h we a r e i n t e r e s t e d , i.e., the S u d a n , E g y p t , P a l e s t i n e , T r a n s
j o r d a n i a , I r a q , A r a b i a (excluding, p e r h a p s , A d e n a n d such m a t t e r s of d e t a i l e d
a d m i n i s t r a t i o n as a r e p r i m a r i l y t h e concern of t h e I n d i a n G o v e r n m e n t ) a n d P e r s i a ,
to a single d e p a r t m e n t of S t a t e .
I t w o u l d , in p a r t i c u l a r , be a n i m m e a s u r a b l e
a d v a n t a g e to t h e A i r M i n i s t r y , w h i c h i s , w i t h very small forces, responsible for
defence over a l a r g e p a r t of t h e M i d d l e E a s t ; a n d to t h e R o y a l A i r Force, to w h o m
for t h i s r e a s o n free c o m m u n i c a t i o n t h r o u g h o u t t h i s s p h e r e is of v i t a l s t r a t e g i c
i m p o r t a n c e , to h a v e to deal w i t h one a u t h o r i t y a n d one only, b o t h on t h e spot a n d i n
London.
3 . I n a s m u c h as t h e r e s p o n s i b i l i t y for r e l a t i o n s w i t h t h e i n d e p e n d e n t K i n g d o m
of P e r s i a m u s t clearly r e m a i n u n d e r t h e F o r e i g n Office, as also m u s t those w i t h
E g y p t , N e j d a n d t h e H e d j a z , a n d , p r e s u m a b l y , t h e affairs of t h e S u d a n , t h e choice
of t h e D e p a r t m e n t to look a f t e r t h e block of c o u n t r i e s w e h a v e m e n t i o n e d is l i m i t e d
to t h e F o r e i g n Office; a n d t h e problem r e d u c e s itself to t h i s . I s i t p r a c t i c a b l e , o r
desirable, for t h e F o r e i g n Office to t a k e over t h e r e s p o n s i b i l i t y for t h e o t h e r c o u n t r i e s
r e f e r r e d t o in t h e p r e c e d i n g p a r a g r a p h ?
4 . I n t h i s connection we w e r e i n f o r m e d t h a t t h e r e w a s a c o n s i d e r a b l e d i v e r g e n c e
of o p i n i o n i n t h e C a b i n e t of 1920 a s to w h e t h e r t h e t e r r i t o r i e s i n q u e s t i o n s h o u l d be
the r e s p o n s i b i l i t y of t h e Colonial S e c r e t a r y o r t h e F o r e i g n S e c r e t a r y , a n d t h a t t h e
decision i n f a v o u r of t h e f o r m e r w a s by a m a j o r i t y ; a n d we, t h e r e f o r e , t h o u g h t i t
r i g h t to r e - e x a m i n e t h e p r o p o s i t i o n in t h e l i g h t of t h e e x p e r i e n c e of t h e p a s t e i g h t
y e a r s . O u r i n q u i r i e s have s h o w n t h a t a d i v e r g e n c e of o p i n i o n still e x i s t s ; a n d it
may be h e l p f u l if we assemble t h e p r i n c i p a l a r g u m e n t s on e a c h s i d e .
5 . T h e a r g u m e n t s t h a t h a v e been p u t f o r w a r d by those w h o a r e i n o p p o s i t i o n
to t h e p r o p o s a l m a y be s u m m a r i s e d as follows —
(a.) A d m i n i s t r a t i o n is n o t t h e business of t h e F o r e i g n Office, a n d i t s a t t e m p t s to
c o n d u c t i t in t h e p a s t have g e n e r a l l y been a t t e n d e d by f a i l u r e .
An
o v e r w h e l m i n g case should be e s t a b l i s h e d before t h e a d m i n i s t r a t i o n of a n y
f u r t h e r t e r r i t o r y s h o u l d be e n t r u s t e d to it.
(&.) T h e outlook, t r a i n i n g , a n d t e m p e r a m e n t of a d m i n i s t r a t o r s a n d d i p l o m a t s a r e
essentially different. T h e F o r e i g n Office does n o t p r o d u c e a d m i n i s t r a t o r s ,
a n d w h e n i t r e q u i r e s t h e m , h a s to b o r r o w from o t h e r b r a n c h e s of G o v e r n
m e n t service. O n m o r e t h a n one occasion i n r e c e n t y e a r s t h e qualifications
of G o v e r n o r s t h u s r e c r u i t e d have been q u e s t i o n a b l e .
Yet, i n these
M a n d a t e d T e r r i t o r i e s , t h o u g h d i p l o m a t i c a b i l i t i e s m a y be of i m p o r t a n c e ,
t h e q u a l i t y of t h e a d m i n i s t r a t i o n i s t h e c r i t e r i o n by w h i c h w o r l d o p i n i o n
will j u d g e t h e success or f a i l u r e of t h e M a n d a t o r y P o w e r .
(ci) T h e S u d a n is u n d e r F o r e i g n Office c o n t r o l solely because t h e C o n d o m i n i u m
w i t h E g y p t m a k e s it impossible to place the t e r r i t o r y u n d e r t h e control of
any other Department.
T h a t i t s h o u l d h a v e been a d m i n i s t e r e d w i t h some
success is due to p e c u l i a r a n d e x c e p t i o n a l c i r c u m s t a n c e s . F i r s t l y , t h e
S u d a n is p r a c t i c a l l y isolated i n t h e m i d d l e of t h e c o n t i n e n t a n d removed
from e x t e r n a l influences a n d d i s t r a c t i o n s , so t h a t all p r o b l e m s of govern
m e n t a r e c o n s i d e r a b l y simplified. Secondly, it h a s been possible to e n d o w
t h e c o u n t r y w i t h a n efficient staff of n u m e r o u s carefully selected E n g l i s h
men, a n d t h e a d m i n i s t r a t i o n , t h o u g h good, is very e x p e n s i v e .
Finally,
a n d r e s u l t i n g f r o m t h i s , t h e a m o u n t of a d m i n i s t r a t i v e c o n t r o l exercised
from L o n d o n is infinitesimally s m a l l .
6.
T h e a r g u m e n t s on t h e o t h e r s i d e m a y be s u m m a r i s e d a s follows :—
(a.) I n the case of both I r a q a n d T r a n s j o r d a n , o u r p o s i t i o n i s t h a t of a d v i s e r s
to t h e local G o v e r n m e n t s : w e a r e n o t d i r e c t l y a d m i n i s t e r i n g t h e
t e r r i t o r i e s . I n r e g a r d t o P a l e s t i n e , w e a r e , i t is t r u e , d i r e c t l y r e s p o n s i b l e
for t h e g o v e r n m e n t of t h e c o u n t r y . T h e b u r d e n of a d m i n i s t r a t i o n w a s
heavy a t first, as w a s n a t u r a l i n a c o u n t r y w h i c h h a d j u s t e m e r g e d from
c o n d i t i o n s of w a r , a n d i n w h i c h a n e n t i r e l y new a d m i n i s t r a t i v e m a c h i n e
h a d t o be set u p . I t s t i l l r e m a i n s h e a v y ; b u t i t m i g h t h a v e been r e l a x e d
i n course of t i m e , a s t h e n e w r e g i m e became m o r e s t a b i l i s e d , h a d i t n o t
been for t h e u n h a p p y events of A u g u s t l a s t .
These events have
u n d o u b t e d l y caused a s e r i o u s set-back, t h e p e r m a n e n t effects of w h i c h c a n
h a r d l y be g a u g e d a t p r e s e n t .
(6.) T h e special business of t h e Colonial Office is u n d o u b t e d l y a d m i n i s t r a t i o n .
B u t , i n t h e first p l a c e , t h e f u n c t i o n s of H i s M a j e s t y ' s G o v e r n m e n t i n t h e
two o u t of the t h r e e c o u n t r i e s u n d e r c o n s i d e r a t i o n a r e , a s s t a t e d above,
a d v i s o r y r a t h e r t h a n a d m i n i s t r a t i v e . Secondly, t h e C o l o n i a l Office, if
t h e i r a d m i n i s t r a t i o n i s to be effective, should be p e r m i t t e d to a d m i n i s t e r
by t h e i r o w n m e t h o d s , a n d a l o n g t r i e d a n d proved l i n e s . T h i s t h e y a r e
f r e q u e n t l y p r e c l u d e d from d o i n g by i n t e r n a t i o n a l c o m p l i c a t i o n s a r i s i n g
out of the m a n d a t o r y s t a t u s of t h e c o u n t r i e s i n q u e s t i o n . A s a r e s u l t ,
t h e a d v a n t a g e s of Colonial Office control a r e to some e x t e n t n e u t r a l i s e d .
(c.) U n d e r p r e s e n t a r r a n g e m e n t s a s i t u a t i o n h a s g r o w n u p i n w h i c h different
D e p a r t m e n t s of S t a t e a r e a p t t o find themselves r a n g e d on t h e side of
r i v a l A r a b c h i e f t a i n s : t h e Colonial Office on t h e s i d e of t h e Sharifian
f a m i l y , K i n g F e i s a l a n d A m i r A b d u l l a h ; the F o r e i g n Office a n d I n d i a
Office on t h a t of I b n S a u d .
U n i f i c a t i o n of c o n t r o l w o u l d e n a b l e the.
D e p a r t m e n t d e a l i n g w i t h t h e p r o b l e m to t a k e a m o r e c o m p r e h e n s i v e view
of t h e whole m a t t e r , a n d w o u l d t e n d to p r o m o t e a m o r e c o n s i s t e n t policy.
(d.) I t is u n d e r s t o o d t h a t I r a q is likely to be a d m i t t e d t o t h e L e a g u e of N a t i o n s
in 1932, i n w h i c h case t h e r e s p o n s i b i l i t y for o u r r e l a t i o n s w i t h t h a t
c o u n t r y w i l l p r e s u m a b l y h a v e , ostensibly, i n a n y case, t o be t r a n s f e r r e d
from t h e C o l o n i a l Office t o t h e F o r e i g n Office.
(e.) "With r e g a r d to t h e a r g u m e n t t h a t F o r e i g n Office a t t e m p t s a t a d m i n i s t r a t i o n
have been unsuccessful i n t h e p a s t , w e a s s u m e t h a t r e f e r e n c e i s to such
places as U g a n d a a n d o t h e r P r o t e c t o r a t e s . I n r e g a r d t o t h i s , w e t h i n k i t
f a i r t o p o i n t o u t t h a t t h e F o r e i g n Office h a d to d i s c h a r g e t h e difficult role
of d e a l i n g w i t h these a r e a s i n t h e p i o n e e r s t a g e ; a n d t h a t t h e i r successors
have a t l e a s t h a d t h e a d v a n t a g e of b u i l d i n g u p o n t h e f o u n d a t i o n s w h i c h
they h a d l a i d . M o r e o v e r , t h e selection of personnel for a d m i n i s t e r i n g
a n y s u c h a r e a s o n t h e spot is n o t i n t h e l e a s t confined t o officers of t h e
F o r e i g n Office or D i p l o m a t i c S e r v i c e ; t h e field of choice a l i k e for
G o v e r n o r s a n d t h e i r s u b o r d i n a t e s s h o u l d n o t be artificially l i m i t e d ,
t h o u g h t h e n a t u r a l e x p e c t a t i o n w o u l d be t o find m e n of t h e r i g h t
e x p e r i e n c e l a r g e l y from t h e Overseas, Colonial, I n d i a n , a n d S u d a n e s e
Services.
(Signed)
N. F. W A R R E N F I S H E R .
R O G E R M. B E L L A I R S ,
. Captain,
R.N.
K. D. M U R R A Y ,
Colonel, General
Staff.
C. L. N E W A L L ,
Air
Commodore.
J . A. W E B S T E R .
(Signed)
H . L. ISMAY
(Secretary).
2, Whitehall
Gardens, S.W.
December 12, 1929.
[20290]
1,
APPENDIX.
" D E F A C T O " P O S I T I O N AS R E G A R D S P O L I T I C A L A R R A N G E M E N T S I N THE
PERSIAN GULF.
A L L t h e posts in t h e Gulf, w i t h t h e e x c e p t i o n of one or t w o m i n o r consular
a p p o i n t m e n t s on t h e P e r s i a n side, a r e filled from t h e P o l i t i c a l D e p a r t m e n t of the
G o v e r n m e n t of I n d i a . T h e c h a r g e s in connection w i t h t h e m a r e , on t h e A r a b side,
borne wholly by I n d i a , save in t h e case of K o w e i t , w h e r e e x p e n d i t u r e is halved w i t h
t h e H o m e G o v e r n m e n t . O n t h e P e r s i a n side they a r e s h a r e d between I n d i a a n d the
Home Government.
2. T h e chief a u t h o r i t y i n t h e G u l f is t h e P o l i t i c a l R e s i d e n t a n d C o n s u l - G e n e r a l
a t B u s h i r e . S u b o r d i n a t e t o t h i s officer on t h e A r a b s i d e a r e t h e P o l i t i c a l A g e n t s a t
K o w e i t a n d B a h r e i n , t h e R e s i d e n c y A g e n t a t S h a r g a h (who looks a f t e r t h e T r u c i a l
coast) a n d t h e P o l i t i c a l A g e n t a t M u s c a t — a l l E u r o p e a n officers of t h e I n d i a n
P o l i t i c a l D e p a r t m e n t , e x c e p t t h e R e s i d e n c y A g e n t , w h o is a n A r a b . T h e s e officers
t a k e t h e i r o r d e r s t h r o u g h t h e P o l i t i c a l R e s i d e n t , a n d correspond w i t h h i g h e r
a u t h o r i t y t h r o u g h h i m . T h e civil j u d i c i a l p o w e r s w h i c h t h e y exercise u n d e r v a r i o u s
O r d e r s in Council a r e also exercised by t h e m subject t o final a p p e a l t o t h e P o l i t i c a l
Resident.
3. On t h e P e r s i a n side, t h e R e s i d e n t h a s n o l o n g e r a n y f u n c t i o n s of i m p o r t a n c e
a s Resident.
H i s r e s p o n s i b i l i t i e s on t h i s side a r e chiefly consular, a n d a r e d i s c h a r g e d
by h i m in h i s c a p a c i t y a s C o n s u l - G e n e r a l . I n t h a t c a p a c i t y he h a s s u b o r d i n a t e t o
h i m consular officers a t B u s h i r e , B a n d a r A b b a s , a n d a C o n s u l a r A g e n t a t L i n g a h ,
w h i l e he is himself responsible, n o t t o t h e G o v e r n m e n t of I n d i a or t o t h e Colonial
Office, b u t t o t h e F o r e i g n Office t h r o u g h t h e M i n i s t e r a t T e h r a n .
4. T h e R e s i d e n t is n o t concerned d i r e c t l y w i t h Iraq, n o r o r d i n a r i l y , a s m a t t e r s
now s t a n d , w i t h I b n S a u d ; b u t h i s r e s p o n s i b i l i t i e s i n r e g a r d t o K o w e i t i n e v i t a b l y
involve some c o n t a c t w i t h t h e B r i t i s h A u t h o r i t i e s in I r a q .
5. T o u n d e r s t a n d t h e position
of the Resident
vis-a-vis
outside
British
authorities,
it is necessary t o p r e m i s e t h a t t h e M a s t e r t o n - S m i t h C o m m i t t e e of 1921
recommended t h a t t h e Colonial Office should become t h e responsible B r i t i s h a u t h o r i t y
o n a l l m a t t e r s r e l a t i n g t o policy i n A r a b a r e a s ( i n c l u d i n g t h e A r a b i a n l i t t o r a l of
t h e P e r s i a n G u l f ) : b u t t h a t " for a d m i n i s t r a t i v e a n d p u r e l y local p u r p o s e s t h e
control of t h e G o v e r n m e n t of I n d i a over t h e A r a b i a n l i t t o r a l of t h e P e r s i a n Gulf
s h o u l d be m a i n t a i n e d , " w h i l e " t h e p r i o r c o n c u r r e n c e of t h e Colonial Office should
be o b t a i n e d by t h e m t o a n y m e a s u r e s of p o l i t i c a l significance."
T h e c h a n n e l of
control in all cases w a s to be t h e P o l i t i c a l R e s i d e n t i n t h e P e r s i a n Gulf, w h o w a s ,
a s h i t h e r t o , t o be f o u n d from t h e service of t h e G o v e r n m e n t of I n d i a . T h e r e p o r t
of t h e M a s t e r t o n - S m i t h C o m m i t t e e w a s a c c e p t e d by H i s M a j e s t y ' s G o v e r n m e n t
s u b j e c t to t w o provisos, one of w h i c h w a s t h a t t h e a p p r o v a l of t h e G o v e r n m e n t of
I n d i a should be obtained.
T h a t a p p r o v a l w a s n e v e r in fact given, b u t t h e
C o m m i t t e e ' s p r o p o s a l s in r e g a r d t o the P e r s i a n G u l f w e r e a d o p t e d , provisionally,
a s a w o r k i n g basis.
6. T h e M a s t e r t o n - S m i t h C o m m i t t e e d i d n o t define " p o l i c y " or a t t e m p t to
d r a w * a precise line between q u e s t i o n s of policy a n d " a d m i n i s t r a t i v e a n d l o c a l "
m a t t e r s ; b u t some i n d i c a t i o n of t h e u n d e r l y i n g i n t e n t i o n w a s given by t h e following
p a s s a g e in. t h e i r r e p o r t : " O n t h e a s s u m p t i o n t h a t i t is t h e i n t e n t i o n of t h e C a b i n e t
t h a t t h e M i d d l e E a s t e r n , or r a t h e r t h e A r a b , problem should be t r e a t e d a s one o r g a n i c
whole, we consider t h a t t h e g u i d i n g p r i n c i p l e should be t h a t t h e n e w D e p a r t m e n t
s h o u l d be responsible for d i r e c t i n g policy a s r e g a r d s t h e whole A r a b i a n p e n i n s u l a ,
subject to c e r t a i n qualifications . . . . r e g a r d i n g t h e K i n g d o m of t h e H e d j a z . "
I t is i n p r a c t i c e i n t h e a r e a i n q u e s t i o n e x c e e d i n g l y difficult t o d r a w a l i n e between
p u r e l y a d m i n i s t r a t i v e a n d local m a t t e r s a n d q u e s t i o n s of p o l i c y ; or t o d e c i d e a t w h a t
p o i n t one r a t h e r t h a n t h e o t h e r aspect b e g i n s t o p r e v a i l . " P o l i c y " h a s i n p r a c t i c e
n o r m a l l y been i n t e r p r e t e d a s covering m a j o r q u e s t i o n s of policy affecting A r a b i a n
affairs in g e n e r a l , a n d t h e policy of H i s M a j e s t y ' s G o v e r n m e n t a s affecting I b n S a u d .
Q u e s t i o n s f a l l i n g u n d e r e i t h e r of those h e a d s h a v e r e m a i n e d t h e concern of, a n d h a v e
been dealt w i t h p r i m a r i l y by, t h e Colonial Office (in c o n s u l t a t i o n , as t h e c i r c u m s t a n c e s
m i g h t m a k e it d e s i r a b l e , w i t h t h e F o r e i g n Office a n d / o r I n d i a Office); o t h e r q u e s t i o n s
have c o n t i n u e d , a s i n t h e p a s t , to be d e a l t w i t h by t h e G o v e r n m e n t of I n d i a a n d t h e
I n d i a Office, a g a i n in c o n s u l t a t i o n , w h e r e necessary, w i t h t h e F o r e i g n Office a n d / o r
Colonial Office.
T h e C o l o n i a l Office in 1924 i n s t r u c t e d t h e P o l i t i c a l R e s i d e n t t h a t t h e y were n o t
" d i r e c t l y concerned w i t h t h e local a f f a i r s of K o w e i t , w h e t h e r p o l i t i c a l or
a d m i n i s t r a t i v e , nor, i n d e e d , w i t h those of a n y o t h e r A r a b i a n S t a t e s b o r d e r i n g u p o n
t h e P e r s i a n G u l f , e x c e p t in so f a r as these m a y r e a c t u p o n A r a b i a n politics i n
g e n e r a l , or u p o n H i s M a j e s t y ' s G o v e r n m e n t s r e l a t i o n s w i t h I b n S a u d i n p a r t i c u l a r .
Consequently, i n all m a t t e r s w h i c h r e l a t e solely to t h e i n t e r n a l a d m i n i s t r a t i o n a n d
politics of these a r e a s , a n d w h i c h a r e u n l i k e l y t o h a v e e x t e r n a l r e p e r c u s s i o n s , y o u
should r e g a r d t h e G o v e r n m e n t of I n d i a a s t h e responsible a u t h o r i t y to whom y o u
should r e p o r t a n d f r o m w h o m you s h o u l d seek i n s t r u c t i o n s . U p o n such m a t t e r s I
should, however, be g l a d if you w o u l d k e e p me i n f o r m e d , i n o r d e r t h a t , should a n y
question w h i c h i n i t s i n i t i a l s t a g e s w a s one of p u r e l y local i n t e r e s t l a t e r become one
of e x t e r n a l i m p o r t a n c e a n d likely t o h a v e r e a c t i o n s u p o n t e r r i t o r i e s or p o l i t i c a l
r e l a t i o n s w h i c h a r e p r i m a r i l y t h e "concern of t h i s D e p a r t m e n t , I m a y n o t , w h e n t h e
m a t t e r is u l t i m a t e l y r e f e r r e d t o m e for i n s t r u c t i o n s , be i g n o r a n t of i t s e a r l i e r
d e v e l o p m e n t s . Y o u should also k e e p t h e G o v e r n m e n t of I n d i a s i m i l a r l y i n f o r m e d of
a n y a c t i o n w h i c h you m a y t a k e u p o n m y i n s t r u c t i o n s i n r e g a r d to m a t t e r s d i r e c t l y or
i n d i r e c t l y affecting t e r r i t o r i e s u n d e r the c o n t r o l of t h e Colonial Office. T o d r a w a
h a r d a n d f a s t d i s t i n c t i o n between m a t t e r s of local a n d m a t t e r s of e x t e r n a l i n t e r e s t
would be e x t r e m e l y difficult, if n o t impossible, a n d I m u s t leave i t t o y o u r d i s c r e t i o n ,
as a n d w h e n cases a r i s e , to decide to w h o m you s h o u l d a p p l y for i n s t r u c t i o n s .
Doubtless m a n y b o r d e r l i n e cases w i l l a r i s e , i n v o l v i n g b o t h local a n d e x t e r n a l
i n t e r e s t s , a n d i n such cases you should r e f e r t h e f a c t s both t o t h e G o v e r n m e n t of
I n d i a a n d t o t h i s D e p a r t m e n t , w h e n t h e n e c e s s a r y a c t i o n to be t a k e n will be concerted
a n d i n s t r u c t i o n s w i l l be issued to you a c c o r d i n g l y . " A t t h e s a m e t i m e , t h e Colonial
Office e x p l a i n e d t h a t t h e g r a n t of oil concessions i n t h e S t a t e s of t h e A r a b i a n l i t t o r a l
should n o t be r e g a r d e d as a m a t t e r of p u r e l y local i n t e r e s t , a n d t h a t on t h i s subject
t h e R e s i d e n t should look to t h e C o l o n i a l Office for i n s t r u c t i o n s .
7. I n p r a c t i c e m a t t e r s h a v e p r o c e e d e d on t h i s b a s i s u p to t h e p r e s e n t t i m e . I n
Muscat
n o q u e s t i o n of m a j o r A r a b i a n policy h a s a r i s e n , a n d no q u e s t i o n of
i m p o r t a n c e affecting r e l a t i o n s w i t h I b n S a u d . I n consequence, t h e G o v e r n m e n t of
I n d i a a n d t h e I n d i a Office, i n c o n s u l t a t i o n w h e r e necessary w i t h t h e F o r e i g n Office
a n d / o r t h e Colonial Office, h a v e r e t a i n e d i n t h i s S t a t e full c o n t r o l of g e n e r a l policy
as of i n t e r n a l a d m i n i s t r a t i o n . T h e y a n d H i s M a j e s t y ' s G o v e r n m e n t a r e r e p r e s e n t e d
i n t h e S t a t e by a P o l i t i c a l A g e n t found f r o m t h e I n d i a n P o l i t i c a l D e p a r t m e n t a n d
u n d e r t h e o r d e r s of t h e P o l i t i c a l R e s i d e n t in t h e Gulf. T h e e x p e n s e s of t h i s officer
a n d t h e M u s c a t s u b s i d i e s of R s . 1,86,400 p e r a n n u m h a v e t h r o u g h o u t been borne by
India.
On t h e Trucial Coast t h e same i s a p p r o x i m a t e l y t h e case. N o q u e s t i o n of m a j o r
policy h a s a r i s e n . C e r t a i n q u e s t i o n s affecting I b n S a u d ' s r e l a t i o n s w i t h t h e local
S h e i k h s a n d t h e p o s s i b i l i t y of h i s p e n e t r a t i o n i n t h i s a r e a h a v e been c o n s i d e r e d
between t h e G o v e r n m e n t of I n d i a a n d t h e I n d i a Office a n d t h e Colonial Office. T h e
p o l i t i c s of t h i s a r e a h a v e , however, r e m a i n e d e s s e n t i a l l y " l o c a l , " a n d t h u s t h e
concern of t h e G o v e r n m e n t of I n d i a a n d t h e I n d i a Office, a s h a s i t s i n t e r n a l
a d m i n i s t r a t i o n . (Such expenses as t h e r e a r e a r e b o r n e by I n d i a , a n d t h e G o v e r n
m e n t of I n d i a a n d H i s M a j e s t y ' s G o v e r n m e n t a r e r e p r e s e n t e d by a n A r a b R e s i d e n c y
A g e n t , r e p o r t i n g d i r e c t l y to t h e P o l i t i c a l R e s i d e n t i n t h e P e r s i a n G u l f . )
T h e same i s g e n e r a l l y t r u e of Bahrein.
T h e C o l o n i a l Office a n d t h e F o r e i g n
Office h a v e , however, been closely a s s o c i a t e d w i t h t h e i n s t r u c t i o n s issued by t h e
G o v e r n m e n t of I n d i a on behalf of H i s M a j e s t y ' s G o v e r n m e n t , e.g., as r e g a r d s t h e
d e p o s i t i o n of S h e i k h I s a i n 1923. T h e v a r i o u s r e p l i e s m a d e to t h e P e r s i a n c l a i m s to
B a h r e i n h a v e been p r e p a r e d in close c o n s u l t a t i o n b e t w e e n t h e F o r e i g n Office a n d
I n d i a Office, t h e c o n c u r r e n c e of t h e C o l o n i a l Office b e i n g o b t a i n e d before t h e i r
despatch.
I n Koweit
t h e p o s i t i o n is different.
T h e close connection of K o w e i t w i t h
q u e s t i o n s a r i s i n g i n r e g a r d to I r a q a n d N e j d a n d t h e absence of p u r e l y local issues
of i m p o r t a n c e h a s r e s u l t e d i n policy in t h a t S t a t e b e i n g i n effect essentially t h e
concern of t h e C o l o n i a l Office a n d b e i n g d e a l t w i t h p r i m a r i l y by t h a t D e p a r t m e n t
since 1921. B u t t h r o u g h o u t t h a t p e r i o d t h e F o r e i g n Office a n d t h e I n d i a Office a n d
t h e G o v e r n m e n t of I n d i a , as c i r c u m s t a n c e s m i g h t r e q u i r e , h a v e been k e p t in close
t o u c h w i t h d e v e l o p m e n t s a n d consulted. I t will be a p p r e c i a t e d t h a t in t h i s a r e a
p a r t i c u l a r l y border-line cases t e n d to a r i s e of t h e n a t u r e r e f e r r e d t o i n t h e C o l o n i a l
Office d e s p a t c h of 1924 q u o t e d in p a r a g r a p h 6 above. I n t e r n a l a d m i n i s t r a t i o n i n
K o w e i t h a s in t h e o r y r e m a i n e d t h e b u s i n e s s of t h e G o v e r n m e n t of I n d i a . B u t n o
i n t e r n a l question h a s a r i s e n since 1 9 2 1 - 2 2 w h i c h h a s called for i m p o r t a n t a c t i o n
e i t h e r by t h e H o m e or t h e I n d i a n G o v e r n m e n t . I n t h i s S t a t e , I n d i a , however, h a s
c o n t i n u e d to share t h e e x p e n s e s of t h e P o l i t i c a l A g e n c y , a n d t h e P o l i t i c a l A g e n t h a s
c o n t i n u e d t o be b o r n e o n t h e c a d r e of t h e I n d i a n Service.
8. F r o m the above it w i l l be seen t h a t w h i l e u n d e r t h e t e r m s of t h e M a s t e r t o n S m i t h r e c o m m e n d a t i o n s t h e R e s i d e n t w a s t o be responsible t o t h e Colonial Office for
all " m a t t e r s r e l a t i n g t o policy " a r i s i n g i n connection w i t h t h e A r a b l i t t o r a l , h e h a s
i n p r a c t i c e r e m a i n e d r e s p o n s i b l e t o t h e G o v e r n m e n t of I n d i a , e x c e p t i n t h e case of
K o w e i t a n d on q u e s t i o n s affecting I b n S a u d or t h e development of oil resources.
S a v e i n respect of those m a t t e r s , t h e P o l i t i c a l R e s i d e n t h a s t a k e n h i s o r d e r s on
m a t t e r s affecting t h e S t a t e s of t h e A r a b l i t t o r a l from t h e Government
of India, or
from His Majesty's
Government
t h r o u g h t h e India Office.
T h e orders i n question
h a v e been f r a m e d , w h e r e necessary, a f t e r c o n s u l t a t i o n w i t h t h e Colonial Office a n d
F o r e i g n Office, w h o h a v e in all cases been k e p t i n close t o u c h w i t h d e v e l o p m e n t s . I n
t h e case of K o w e i t (save a s r e g a r d s i n t e r n a l a d m i n i s t r a t i o n ) a n d of all m a t t e r s
affecting r e l a t i o n s w i t h I b n S a u d d e a l t w i t h t h r o u g h t h e P e r s i a n Gulf, t h e P o l i t i c a l
R e s i d e n t h a s t a k e n h i s o r d e r s wholly from t h e Colonial Office. T h o s e o r d e r s h a v e a s
a r u l e been issued u n d e r c o n s u l t a t i o n w i t h t h e I n d i a Office a n d F o r e i g n Office a s t h e
case m i g h t be. A s r e g a r d s c o n s u l a r m a t t e r s on t h e s o u t h P e r s i a n s h o r e , t h e P o l i t i c a l
R e s i d e n t h a s t a k e n h i s o r d e r s f r o m t h e Foreign
Office.
9. Some reference m a y p e r h a p s be t h o u g h t d e s i r a b l e t o t h e r e l a t i o n of t h e
P o l i t i c a l R e s i d e n t t o t h e S e n i o r N a v a l Officer of t h e P e r s i a n G u l f S q u a d r o n of t h e
N a v y . T h i s S q u a d r o n consists of t h r e e o r f o u r sloops. I t s c o a l i n g a n d refitting
e x p e n s e s a r e borne by I n d i a . I t is u n d e r t h e N a v a l C o m m a n d e r - i n - C h i e f , E a s t
I n d i e s , b u t t h e sloops, w h i c h a r e c o n t i n u a l l v c r u i s i n g i n o r a b o u t t h e P e r s i a n Gulf,
a r e for p r a c t i c a l p u r p o s e s a t t h e d i s p o s a l of t h e P o l i t i c a l R e s i d e n t (in
agreement
with the Senior Naval Officer), a n d t h e r e s p o n s i b i l i t y for i n v o k i n g t h e i r a s s i s t a n c e
or a s k i n g t h e S e n i o r N a v a l Officer to d e s p a t c h o n e of t h e m t o a p a r t i c u l a r p l a c e i n
connection w i t h a p a r t i c u l a r s i t u a t i o n r e s t s w i t h t h e P o l i t i c a l R e s i d e n t , w h o is
c l e a r l y i n t h e best p o s i t i o n to c o - o r d i n a t e a c t i o n i n t h e Gulf, since he is in t o u c h a t
once w i t h t h e P e r s i a n a n d t h e A r a b sides, a n d since c o m m u n i c a t i o n s f r o m t h e v a r i o u s
D e p a r t m e n t s of H i s M a j e s t y "s G o v e r n m e n t w h o a r e i n t e r e s t e d i n t h e Gulf, a n d
f r o m t h e G o v e r n m e n t of I n d i a , pass t h r o u g h h i m t o t h e s u b o r d i n a t e offices u n d e r h i s
control on t h e A r a b or on t h e P e r s i a n sides.
o
his
document
is
the
property
of
His
Britannic
Majesty's
Government.
ST.
.253(30).
C A B I N E T .
ARMISTICE DAY.
Memorandum b y t h e
Before
separating
my c o l l e a g u e s
undertake
the
the duty
observance
on a Tuesday.
with general
that
would
of
celebration
of
year's
and
whether
Day,
I
should
they wish
the
arrangements
to
the
offer,
same
July,
1930.
glad
if
me a g a i n
to
this
subject
that
lines.
this
for
year
appeared
J.R.C.
17th
he
arrangements
which w i l l
I reconmend,
may w i s h
follow
Secretary.
Recess
co-ordinating
Armistice
approval
should
the
indicate
Last
my c o l l e a g u e s
for
Home
to
to
fall
meet
any
year's
views
AGRICULTURAL
^yoyaridinii cy t h e
If
the
agriculture
not
propose
previous
production of
to
my c o n v i c t i o n
saved
prosperous
re-cover
notos
and r e a d y
Secretary
could have
been a highly
POLICY,
the
State
for
the
British
agriculture
would
ground
it
but
I have
I
covereo.
ix.
do
reaffirm
industry
desirable
have
time,
would merely
agricultural
for. such h i g h l y
Scotland..
memoranda u p o n
Industry by t h i s
and p a p e r s ,
that
of
Is
changes
ripe
and
reforms
as
(a)
the
development
I-have
of
a promise
d o n o r , ' i/ir, - T . B .
the
purpose
ment
of
large
easy reach
propose
for
(b)
of
of'funds
iiiacaulay
tracts
of
of Edinburgh
also
making
experimental
Flanders
Small
holdings,
co-operation
farms/
from a
of
private
Canada
investigating
great
to
experimental
the
barren
for
improve
land
and Glasgow.
immediate
within
I
arrangements
farm r e c l a m a t i o n
on
the
Moss;
with-every
encouragement
in
the
marketing
of
the
scrub
of
the
produce j
(c)
The e l i m i n a t i o n
(d)
The
establishment
of
bull;'
additional
owned and managed b y farmei-s
abattoirs
societies.
(e)
Encouragement
particularly
ab o r t i on,
of
research
in
work
contagious
t u b e r c u l o 3 is a n d b r ac ke n
elimination;;
(f)
Arrangements
tural
Credits
made
operative
existing
under
the
(g)
the
Import
a
great
all
power
a first
of
expanding
until
as
with
a
in
chance
of
it.
orderly
benefits
none but
opportunity
subject.
Under-Secretary
forty-five
give
those
food
Bill
of
our
by
part
emphasise
Marketing
of
with
Bill
is
necessity.
appear
to
be.much
engaged
in an
an o p p o r t u n i t y
once
of
presently
to
and of
give
need
industry
an
threatened
the
eliminating
producers,
State
delegates
to
does
sounding
Recently
of
indispensable
who a r e
at
proposed
industry
the
chaotic
a scramble
which
middlemen;
Our M a r k e t i n g
on t h e
not
deal
reforms
I would
that
marketing
among o u r home
an
urgent
We o u g h t
scramble
possible
and t h e
but
to
proved.
of; p e o p l e
all
to
for
organised
is
are
indeed
of
up
function
where
oats
these
numbers
livelihood
ruin
in
policy,
would
the
set
be
Kingdom.
and most
we c a n f i r s t
economic
the
my d i s p o s a l
and v i t a l
There
by enabling
Corporation
A3t
Agriculture
at
may
commodities
agricultural
the
Act
English/to
I n my o p i n i o n
of
Agricul
Ecards p a r t i c u l a r l y
dumping
Minister
the
Scotland
Loan
United
with
the
whereby
for
for
the
that
and
Scottish
example,
Scotland
Executive
I have
agricultural
the
had
taken
opinion
Parliamentary
a meeting
Council
every
of
the
with
National
Farmers'
the
Union
meeting
bodied
There
in
were
(a)
in
the
our
Scotland.
general
Bill
no
approved
dissenters
to
oompulciion
on t h e
protection
for
-underselling,
(b)
possible
and
the
and
in
it
the
(c)
as
milk
the
for
I.
for
regard
which
with
experience,
in
in
wc
en
and p o t a t o
but
set
encourages
Idea
farming
the
produeor
other
not
trades
agricul
various
of
parts
contract
and
the
which he has
to
raise
security
of
of
of
the
moveable
would
by
discu.3S
Producers
t a t ions
to
the
between
or
upon
Pool
the
products;
and
Secretary
of
representative
interests
prices,
Boards
Board
the
committees
consumers'
as
contracted;
loans
appointment
State
of
pools
(This
It
products
power
the
the
itself
Act,
enf o r c i b i l i o y
with
(o)
grade
world);
the
(d)
of
accords
Scotland,
tural
from
low
organisatIon
the
light sned
In
majority
industry
co-operative
only
of
(im,
organisations
fundamental.
stand
since
principles
producing
etc,,
and make
Secretary
of
ei
acclamation".
minority
recognition
operating
the
we h a v e
etc, )
appropriate
as
conclusion
"by
the
the
co-operative
up by
the
principles
were
qualities^,
At
who
with
the
represen
of
State
who,
under
has
power
not
Clause
the
Bill,
to revoke
an o r d e r
satisfied
that
he
is
be
continued.
interests
7 of
The
are
thus
it
if
should
consumers'
adequately
pro
tec ted.
I
also
should
approved by the
Union,
tural
by the
chief
Committee
with the
embodied
in the
in
in
might
be
xnent t o
of
of
into
Agriculture
the
the
of
the
although upon t h i s
more
1 have
Bill,
point
1 firmly
in
our f a v o u r
in
a very
believe,
rural
that
July
Office,
17th,
1330,
the
Go-operation.
been
discussing
and I
(c)
is
am h a p p y
(a)
and
(d)
is
are
incorporated
the
drafting
any
effort
transform
districts,
difficult
the
be
encourage
everywhere;
at
the
upon our
orderly
political
and would
political
Bill
would g i v e
effect
WlvL ADAMS ON'.
Scottish
Chairman of
perhaps
opinion
rallying
appreciate
in the
(e)
introduction
agricultural
an i m p o r t a n t
would,
Agricul
definite.
Its
it
Servants'
upon them.
(b),
and
forthwith.
greatly
Farm
and F i s h e r i e s
s t r o n g l y urge
who w o u l d
the
Agricultural
Clause
are
Co-operative
I would most
would have
Scottish
an agreement
application
enlightened
opponents
of
main p o i n t s
strvicturc
a little
introduced
it
the
7,
the
now r e a c h e d
Scottish
Clause
Enquiry
are
Minister
s a y we h a v e
Secretary
main p r i n c i p l e s
and by Major S p r o t ,
of
These
theso
officials
Organisations
recont
to
add t h a t
indeed
own
Party,
marketing;
situation
place-our
position.
20
7
( TJais D o c u m e n t \ i s t h e . P r o p e r t y o f E i s
Ma .1 e s t y ' s G- ov e r n n - e n t . )
S E O R E
-Q.P.,TS55
T
-
(50)
Britannic
COPY No
.
0
A B I
N E T .
P A L E S T I N E
r
THE GARRISON AND R E S P O N S I B I L I T Y
FOR
CONTROL OF THE F O R G E S .
N o t e by
I
the
am i n s t r u c t e d
circulate
an
extract
of
the Committee
subject
of
the
o^
-
a
(b)
asks
the
in regard
accommodation
"(a)
Palestine
the
the
of
the
to
Prime Minister
Minutes
Imperial
Garrison,
Sub-Committee
Prime Minister
conclusions
by
from
Meeting
Report
Secretary.
the
to
the
Defence
together
on t h a t
Cabinet
of
to
849th
on
with
subject.
the
The
approve the
strength,
the
following
transport
and
garrison:
That t h e g a r r i s o n
include, for the
force equivalent
that the present
and armoured c a r s
Jordan should be
should continue to
present, an infantry
t o two b a t t a l i o n s ,
and
s t r e n g t h of
aircraft
i n P a l e s t i n e and T r a n s maintained.
T h a t t h e s t r e n g t h o^ t h e g a r r i s o n s h o u l d
b e r e v i e w e d a n n u a l l y by t h e C o m m i t t e e o f
I m p e r i a l D e f e n c e , and t h ? t , i n t h i s
con
n e c t i o n , t h e p o s s i b i l i t y of s u b s t i t u t i n g
the
a " o r o e o f B r i t i s h g e n d a r m e r i e for
i n f a n t r y b a t t a l i o n s might be
further
considered *
p
(c)
That t h e Departments concerned should
consider the recommendation for
station
ing an R,AoS,C . u n i t , w i t h s u i t a b l e
transport, in Palestine to avoid the
p r e s e n t expensive system o
hiring,
and s h o u l d r e p o r t t o t h e C a b i n e t w h e t h e r ,
-rr
on f i n a n c i a l g r o u n d s ,
is
desirable.
(d)
recommendation
Defence
was
"(e)
as
concerned,
me t o
for
in
War h a s
(
o
f
this
as
the
Var
Office,
it
with
a result
the
u
Command,
Imperial
f
Command
again
is
at
has
since
the
Secretaries
invites
been
the
given below.
that
altered
for
than
of
Committee
Minister'
however,
not
-ohe q u e s t i o n
ous
question
the
resolutions
state,
the
of
subject
and
the
bility
the
That t h e Prime M i n i s t e r , t o g e t h e r with
t h e S e c r e t a r i e s o^ S t a t e for t h e
C o l o n i e s , War a n d Aim, s h o u l d
consider
f u r t h e r t h e q u e s t i o n o f t h e Command i n
P a l e s t i n e and r e p o r t t h e r e s u l t of t h e i r
discussion to the Cabinet".
on t h e
approve
to
follows:
The Prime
cation
suggestion
T h a t i f t h e recorair.endat.ion i n (a)
a b o v e i s a p p r o v e d by t h e C a b i n e t ,
the
q u e s t i o n of p r o v i d i n g s u i t a b l e , aeeom
n o d - t i o n for the g a r r i s o n should be
t a k e n u p by t h e D e p a r t m e n t s
concerned."
In regard
the
the
the
his
in Palestine
and r e s e r v e s
when t h e
present
the
occasion
for
He
that
communi
of
State
Cabinet
of
the
State
responsi
should
be
right- to
is
to
instructs
Secretary
view
in
raise
more
introducing,
a
vested
propiti
change
nature.
Subject
recommendation
to
to
the
the
above,
Cabinet
the
is
Prime
as
Minister's
follows:-
T h e H i g h C o m m i s s i o n e r , whq i s a l s o
Commander-in-Chief,
is rssponsible both
f o r d e f e n c e a g a i n s t e x t e r n a l a t t a c k and
f o r t h e m a i n t e n a n c e o^ law and o r d e r .
For defence a g a i n s t e x t e r n a l
attack
h i s pi-incipnl adviser is t h e Air
Officer
C o m m a n d i n g , who h a s a t h i s d i s p o s a l
all
t h e armed f c r o s s of t h e Crown i n P a l e s t i n e .
For t h e m a i n t enano e o
law and
h e i s d e p e n d e n t f o r a d v i c e on t h e
a u t h o r i t i e s , whose principal
force
the police.
If the police forces
i n a d e q u a t e they can be r e i r m o - e e d
t h e armed f o r c e s of t h e Crown.
f
order
civil
is
prove
by
W h i l e t h e A i r O f f i c e r Consnanding
r e m a i n s r e s p o n s i b l e f o r t h e employment
o f t h e f o r c e s u n d e r h i s Command,
whether for e x t e r n a l defence or for
s u p p o r t t o t h e c i v i l power i n t h e
m a i n t e n a n c e of law and o r d e r , i t
is
desirable that the Senior Military
Officer should be given formally the
r i g h t 0'- d i r e c t a c c e s s t o t h e H i g h
C o m m i s s i o n e r on q u e s t i o n s o f i n t e r n a l
s e c u r i t y , on t h e u n d e r s t a n d i n g
that
a l l a r r a n g e m e n t s made as t h e r e s u l t
of s u c h a c c e s s s h o u l d b e s u b j e c t
to
t h e c o n c u r r e n c e of t h e A i r
Officer
Commanding,
0
F o r i n s p e c t i o n a n d a dm i n i s t r a t i v e
purposes, the m i l i t a r y units w i l l be
u n d e r t h e o r d e r s of t h e G e n e r a l O f f i c e r
Commanding B r i t i s h T r o o p s I n E g y p t , as
is the case with the B r i t i s h battalions
in t h e Sudan,
(Signed)
Whitehall
July
Gardens;
29,
19 3 0 .
S, ''V1,
:
M.P.A.HANKEY.
TH1.B DOCUMKKT IB TH3B E B O P E R T Y OF H I S B K T M M M C MJUSESTY'B GOVESM-MBBIT,
Printed
for the Committee
of Imperial
Defence.
July
1930.
SECRET.
Copy N o .
COMMITTEE
Extract
from
the Minutes
$fc'
^
OF
IMPERIAL
of the 249i/i Meeting,
^
(2.)—PALESTINE
DEFENCE.
held on the Uth
^
4fr
July,
1930.
*
GARRISON.
( C . I . D . P a p e r s Nos. 3 4 8 - C a n d 3 5 0 - C . ) *
( P r e v i o u s r e f e r e n c e : C . I . D . M i n u t e s of t h e 2 4 8 t h M e e t i n g , M i n u t e 8.)
T H E C O M M I T T E E h a d u n d e r c o n s i d e r a t i o n t h e R e p o r t of a S u b - C o m m i t t e e
( C . I . D . P a p e r N o . 3 4 8 - C ) , c o n t a i n i n g r e c o m m e n d a t i o n s as t o t h e s t r e n g t h , corn
p o s i t i o n , & c , of t h e f u t u r e g a r r i s o n i n P a l e s t i n e a n d t h e c o n t r o l of t h e D e f e n c e F o r c e
i n t h a t c o u n t r y ; a n d a l e t t e r from t h e C o l o n i a l Office ( C . I . D . P a p e r No. 3 5 0 - C ) , *
c o v e r i n g a n e x t r a c t f r o m a r e p o r t on t h e P a l e s t i n e P o l i c e F o r c e .
T H E P R I M E M I N I S T E R d r e w attention to the fact t h a t t h e R e p o r t ( C . I . D .
P a p e r N o . 3 4 8 - C ) w a s d i v i d e d i n t o t w o d i s t i n c t p a r t s . P a r a g r a p h s 1 t o 13 d e a l t
w i t h t h e s t r e n g t h of t h e g a r r i s o n , a n d p a r a g r a p h s 14 t o t h e e n d w i t h t h e
r e s p o n s i b i l i t y for c o n t r o l . H e s u g g e s t e d t h a t t h e C o m m i t t e e should s t a r t b y d e a l i n g
w i t h t h e r e c o m m e n d a t i o n s i n p a r a g r a p h 13 (a), (b), (c) a n d (d), a n d t h a t S i r J o h n
C h a n c e l l o r , t h e H i g h Commissioner, s h o u l d first give h i s v i e w s .
S I R J O H N C H A N C E L L O R s a i d h e s a w n o r e a s o n t o c h a n g e t h e view e x p r e s s e d
i n h i s d e s p a t c h of l a s t J a n u a r y , t h a t i t w a s n o t possible to h a v e less t h a n t w o I n f a n t r y
B a t t a l i o n s i n P a l e s t i n e . T h e p o s i t i o n a s b e t w e e n the J e w s a n d A r a b s h a d n o t since
i m p r o v e d . I n f a c t , i t w a s r a t h e r w o r s e , as t h e " f e l l a h i n " w e r e now convinced
t h a t t h e y h a d lost l a n d a n d e m p l o y m e n t o w i n g t o the a c t i v i t i e s of t h e J e w s .
This
v i e w w a s confirmed by S i r J o h n H o p e - S i m p s o n .
A b o u t t w o m o n t h s before l e a v i n g P a l e s t i n e h e h a d a r r a n g e d for t h e p r e p a r a t i o n
of a n e w L o c a l D e f e n c e scheme. T h i s w a s b a s e d o n t h e p r e s e n c e i n P a l e s t i n e of t w o
b a t t a l i o n s , i n a d d i t i o n t o t h e a i r c r a f t , a r m o u r e d c a r s , a n d u n i t s of t h e T r a n s - J o r d a n
F r o n t i e r F o r c e . T h e L o c a l D e f e n c e C o m m i t t e e i n P a l e s t i n e w e r e convinced t h a t i t
w o u l d be u n s a f e t o r e d u c e t h e B r i t i s h t r o o p s by one m a n . T h e y h a d c o n s i d e r e d a
r e d u c t i o n of t h e g a r r i s o n , w h i c h w o u l d leave Jaffa w i t h o u t a n y t r o o p s , b u t h a d
u n a n i m o u s l y come to t h e conclusion t h a t i t w o u l d be u n s a f e , i n view of t h e c o n s t a n t
p o s s i b i l i t y of t r o u b l e between t h e J e w s a n d A r a b s of T e l - A v i r a n d Jaffa, t o keep t h e
t r o o p s even h a l f - a n - h o u r d i s t a n t f r o m those t o w n s .
T h e r e w a s a n o t h e r c o n s i d e r a t i o n t o be t a k e n i n t o a c c o u n t , n a m e l y , t h e a n x i e t y
of t h e F r e n c h i n S y r i a . A l t h o u g h t h e a t t i t u d e of t h e F r e n c h H i g h C o m m i s s i o n e r
h a d been v e r y h e l p f u l d u r i n g t h e d i s t u r b a n c e s l a s t year, he w a s i n f o r m e d t h a t t h e
F r e n c h G o v e r n m e n t w o u l d p r o t e s t if t h e p r e s e n t g a r r i s o n w e r e reduced. T h e y h a d
a l r e a d y e x p r e s s e d concern w h e n t h e r e d u c t i o n f r o m t h r e e t o t w o b a t t a l i o n s took p l a c e
l a s t October, b u t h e h a d r e a s s u r e d t h e m by t e l l i n g t h e m t h a t h e h a d a n i m m e d i a t e call
on t w o f u r t h e r b a t t a l i o n s f r o m E g y p t or M a l t a .
-
L O R D P A S S F I E L D observed t h a t t h e C o m m i t t e e s h o u l d not a s s u m e t h a t t h e r e
w o u l d be a l w a y s t w o full I n f a n t r y B a t t a l i o n s i n P a l e s t i n e .
The two u n i t s about
to be sent t h e r e w e r e between 300 a n d 400 u n d e r s t r e n g t h , a n d h e u n d e r s t o o d t h a t
t h e W a r Office w o u l d n o t be able t o b r i n g t h e m u p to fuil s t r e n g t h for some m o n t h s .
* N o t circulated to Cabinet.
[21389-3]
B
2
S I E G E O R G E M I L N E s a i d t h a t t h i s w a s o n e of t h o s e difficult a d m i n i s t r a t i v e
q u e s t i o n s w h i c h a r e l i a b l e to c r o p u p i n t h e A r m y , b u t he h o p e d to be able to m a k e
a r r a n g e m e n t s e n s u r i n g t h a t t h e t w o b a t t a l i o n s would r e m a i n u n d e r s t r e n g t h for t h e
s h o r t e s t possible t i m e .
L O R D P A S S F I E L D d r e w a t t e n t i o n to the r e c o m m e n d a t i o n i n p a r a g r a p h 13 (6)
of t h e R e p o r t t h a t t h e p o s s i b i l i t y of s u b s t i t u t i n g a force of B r i t i s h g e n d a r m e r i e for
t h e i n f a n t r y b a t t a l i o n s m i g h t be f u r t h e r considered. T h e Colonial Office w o u l d
n a t u r a l l y agree t o t h e c o n s i d e r a t i o n of t h i s suggestion i n d u e course, b u t h e w a r n e d
t h e C o m m i t t e e t h a t t h e r e could be n o possibility of a n y g e n d a r m e r i e r e p l a c i n g t h e
i n f a n t r y b a t t a l i o n s for some y e a r s . S I R J O H N C H A N C E L L O R r e m a r k e d t h a t t h e f u n c t i o n s of t r o o p s w e r e
e n t i r e l y different from those of police. T h e role of t h e l a t t e r w a s t o p r e v e n t
d i s t u r b a n c e s so f a r a s t h e y could, w h i l e t h e t r o o p s w e r e r e q u i r e d to s u p p r e s s
disturbances after they h a d arisen.
T H E P R I M E M I N I S T E R asked if t h e W a r Office r e p r e s e n t a t i v e s h a d a n y
r e m a r k s o n the s u g g e s t i o n i n p a r a g r a p h 13 (c) of the R e p o r t t h a t a n R . A . S . C . u n i t
should be p r o v i d e d .
S I R G E O R G E M I L N E s a i d t h a t t h e only difficulty was, t h e financial one, as t h e
t r a n s p o r t would cost money.
S I R J O H N C H A N C E L L O R p o i n t e d o u t t h a t a t p r e s e n t l o r r i e s h a d t o be h i r e a
by t h e m i l i t a r y a t c o n s i d e r a b l e e x p e n s e .
S I R G E O R G E M I L N E a g r e e d t h a t i t w o u l d p r o b a b l y be c h e a p e r t o p r o v i d e
m i l i t a r y t r a n s p o r t t h a n to c o n t i n u e h i r i n g , b u t he w o u l d h a v e to go i n t o t h e q u e s t i o n
of w h a t t r a n s p o r t vehicles w o u l d a c t u a l l y be r e q u i r e d , a n d a s t o w h a t D e p a r t m e n t
w a s to b e a r t h e cost.
M R . S H A W e m p h a s i s e d t h a t t h e W a r Office w i s h e d t o a v o i d a n e x t r a c h a r g e
being m a d e on t h e A r m y e s t i m a t e s for t h i s t r a n s p o r t , a n d h e u n d e r s t o o d t h a t t h e
Colonial Office w e r e e x a m i n i n g t h e q u e s t i o n of P a l e s t i n e b e a r i n g t h e e x t r a e x p e n s e
i n c u r r e d t h r o u g h m i l i t a r y u n i t s b e i n g located in P a l e s t i n e i n s t e a d of a t t h e i r n o r m a l
station.
L O R D P A S S F I E L D s a i d t h a t t h e q u e s t i o n h a d n o t y e t been settled, b u t i t w a s
g e n e r a l l y accepted t h a t so l o n g as P a l e s t i n e w a s i n a p o s i t i o n to d o so, i t should p a y
the e x t r a cost. H e u n d e r s t o o d t h a t a t t h e p r e s e n t t i m e t h e cost of h i r e d t r a n s p o r t
was b e i n g i n c u r r e d by t h e m i l i t a r y , a n d t h e s u g g e s t i o n w a s t h a t a n R . A . S . C . u n i t
would be less expensive.
T H E P R I M E M I N I S T E R suggested t h a t t h e Committee should accept
r e c o m m e n d a t i o n 13 (c) on t h e u n d e r s t a n d i n g t h a t it w o u l d involve n o e x t r a cost t o
t h e E x c h e q u e r , a n d t h a t t h e D e p a r t m e n t s concerned s h o u l d go i n t o t h e question, a n d
r e p o r t t o the C a b i n e t if t h e i r i n v e s t i g a t i o n s showed t h i s w a s necessary.
H e t h e n t u r n e d t o t h e second p a r t of t h e R e p o r t d e a l i n g w i t h t h e q u e s t i o n of
control, p o i n t i n g o u t t h a t t h e r e s p e c t i v e views of t h e W a r Office a n d A i r M i n i s t r y
w e r e g i v e n in p a r a g r a p h s 16 a n d 17, a n d t h a t t h e a r g u m e n t s a p p e a r e d t o be o n t h e
whole f a i r l y evenly b a l a n c e d .
L O R D T H O M S O N s a i d t h a t h i s view w a s t h a t i n P a l e s t i n e t h e r e w e r e t w o
d i s t i n c t f u n c t i o n s t o be c o n s i d e r e d . One w a s t h e r e s p o n s i b i l i t y for i n t e r n a l s e c u r i t y
i n P a l e s t i n e , a n d t h e o t h e r w a s t h e question of t h e e x t e r n a l defence of b o t h T r a n s J o r d a n and Palestine. I t was admitted that at the present time two battalions were
r e q u i r e d in P a l e s t i n e for i n t e r n a l s e c u r i t y i n o r d e r t o r e i n f o r c e t h e i n a d e q u a t e
police. I t w a s , however, difficult t o describe t h e f u n c t i o n s of these b a t t a l i o n s as
m i l i t a r y , a n d h e noticed i n t h e D e f e n c e Scheme t h a t , a c c o r d i n g t o t h e d i s t r i b u t i o n of
t h e i n f a n t r y d u r i n g t h e p r e c a u t i o n a r y stage, t h e r e w o u l d n e v e r be m o r e t h a n t w o
c o m p a n i e s in one place. T h e only r e a l m i l i t a r y d a n g e r t o P a l e s t i n e l a y in possible
i n c u r s i o n s by A r a b s f r o m w i t h o u t , a n d i n f i l t r a t i o n across t h e T r a n s - J o r d a n F r o n t i e r
i n t o P a l e s t i n e . I n h i s o p i n i o n t h e m o s t effective m e t h o d of d e a l i n g w i t h t h i s d a n g e r
w a s t h e p r e s e n t one, n a m e l y , by m e a n s of a i r c r a f t , s u p p o r t e d by a r m o u r e d c a r s a n d
local levies u n d e r t h e A i r Officer C o m m a n d i n g .
M R . S H A W s a i d t h a t w h i l e he d i d n o t feel qualified t o d e a l w i t h p u r e l y
t e c h n i c a l c o n s i d e r a t i o n s , as a l a y m a n , h e could n o t a p p r e c i a t e t h e r i g i d d i s t i n c t i o n
b e t w e e n t h e d u t i e s of t h e R o y a l A i r F o r c e a n d t h e A r m y l a i d down by t h e S e c r e t a r y
of S t a t e for A i r . H e could n o t see t h a t i t w a s m o r e a m i l i t a r y f u n c t i o n to k e e p o u t
r a i d e r s w h o m i g h t u p s e t t h e whole s y s t e m of l a w a n d o r d e r t h a n to s u p p r e s s
d i s t u r b a n c e s a i m e d a t t h e s a m e p u r p o s e b u t i n i t i a t e d from w i t h i n . T h e fact w a s t h a t
i n P a l e s t i n e t r o u b l e h a d in t h e p a s t developed, as m i g h t well h a p p e n i n t h e f u t u r e , i n
such a w a y as to m a k e i t e s s e n t i a l t o h a v e a r m e d m i l i t a r y forces i n t h e c o u n t r y ,
because i t w a s o u t s i d e the competence of t h e R o y a l A i r F o r c e t o keep o r d e r w i t h t h e i r
own m e a n s . T h i s w a s proved l a s t y e a r a n d , as a r e s u l t , t h e r e w a s now in P a l e s t i n e a
m i l i t a r y force f a r s u p e r i o r i n n u m b e r s t o t h e u n i t s of t h e R o y a l A i r F o r c e a n d w i t h
f a r g r e a t e r r e s p o n s i b i l i t y a s r e g a r d s l a w a n d o r d e r . I t seemed t o h i m t h a t t h e
s u g g e s t i o n of t h e H i g h Commissioner t h a t t h e s e c u r i t y of P a l e s t i n e m u s t rest on t h e
m i l i t a r y a r m w a s t h o r o u g h l y sound.
T H E P R I M E M I N I S T E R s a i d t h a t h e g a t h e r e d from S i r J o h n C h a n c e l l o r s
r e p o r t s t h a t t h e c o m m a n d i n P a l e s t i n e s h o u l d be vested in a m i l i t a r y officer.
S I R J O H N C H A N C E L L O R r e p l i e d i n t h e affirmative, a d d i n g t h a t , p e r s o n a l l y ,
h e w o u l d describe t h e s i t u a t i o n a s r e g a r d s i n t e r n a l d i s o r d e r in r a t h e r different w o r d s
f r o m those u s e d by t h e S e c r e t a r y of S t a t e for A i r .
T h e r e were two distinct
defence p r o b l e m s t o be c o n s i d e r e d — t h a t of P a l e s t i n e a n d t h a t of T r a n s - J o r d a n . T h e
l a t t e r w a s a n open d e s e r t c o u n t r y w h e r e t h e R o y a l A i r F o r c e h a d done e x t r a o r d i n a r i l y
good w o r k i n d e a l i n g w i t h r a i d e r s .
O w i n g t o t h e n a t u r e of t h e c o u n t r y , i t w a s
possible for t h e a i r c r a f t t o d e t e c t r a i d e r s , a n d by m e a n s of w i r e l e s s to get a r m o u r e d
c a r s on t h e i r t r a c k s a n d c o n t r o l t h e i r m o v e m e n t s . F i n a l l y , i n o r d e r t o r o u n d u p t h e
r a i d e r s a n d s o r t o u t the looted camels, & c , from o t h e r s a n d r e g a i n possession o f
t h e m , t h e T r a n s - J o r d a n F r o n t i e r F o r c e w a s employed.
I n P a l e s t i n e , on t h e o t h e r h a n d , t h e s i t u a t i o n w a s e n t i r e l y different.
The
c o u n t r y w a s enclosed, w i t h a good d e a l of b u s h , i n t h e J o r d a n V a l l e y a n d r u g g e d h i l l
c o u n t r y , a n d t h e A r a b s w e r e clever i n c o n c e a l i n g themselves f r o m a i r o b s e r v a t i o n .
A i r r e c o n n a i s s a n c e w a s by n o m e a n s a d e q u a t e by itself i n a c o u n t r y of t h i s n a t u r e ,
a n d i t w a s e s s e n t i a l t o have m i l i t a r y t r o o p s on t h e g r o u n d to r o u n d u p m a r a u d e r s ,
t o p r o t e c t i s o l a t e d J e w i s h colonies, to k e e p o r d e r i n t h e l a r g e t o w n s , a n d g e n e r a l l y
t o clear u p t h e c o u n t r y . T h e A i r F o r c e could n o t do a n y of these t h i n g s , a n d h e could
only recall one i n s t a n c e d u r i n g t h e d i s t u r b a n c e s l a s t y e a r i n w h i c h a i r c r a f t , u n a i d e d ,
t u r n e d b a c k a n A r a b a d v a n c e on H a i f a f r o m t h e open c o u n t r y t o t h e n o r t h . I t w a s
impossible t o rely on a i r c r a f t b e i n g i n t h e r i g h t p l a c e a t t h e r i g h t t i m e for s u c h
fleeting a c t i o n s .
L O R D P A S S F I E L D p o i n t e d o u t t h a t t h i s l a t t e r difficulty a p p l i e d also i n t h e
case of t h e m i l i t a r y forces. H e d i d n o t w i s h to i n t e r v e n e i n t h e d i s p u t e b e t w e e n
t h e A r m y a n d t h e R o y a l A i r F o r c e , b u t h e w a s concerned i n r e g a r d to t h e s u g g e s t i o n
t h a t t h e r e m i g h t be one c o m m a n d i n P a l e s t i n e a n d a n o t h e r i n T r a n s - J o r d a n , a s t h i s
m i g h t p r o d u c e c o m p l i c a t i o n s , o w i n g to t h e f a c t t h a t t h e T r a n s - J o r d a n F r o n t i e r
F o r c e w a s p a r t l y p a i d for by T r a n s - J o r d a n a n d p a r t l y by P a l e s t i n e , a n d w a s
i n t e n d e d to be a v a i l a b l e for b o t h c o u n t r i e s . I t a p p e a r e d p r e f e r a b l e for one m i l i t a r y
officer e i t h e r to t a k e c o m m a n d of t h e forces i n b o t h c o u n t r i e s or n o t to a s s u m e t h e
c o m m a n d a t all.
S I R R I C H A R D H O P K I N S , i n r e p l y to t h e P r i m e M i n i s t e r , s a i d h e d i d n o t
t h i n k the C h a n c e l l o r of the E x c h e q u e r h a d been able to s t u d y t h i s question.
T H E P R I M E M I N I S T E R r e m a r k e d t h a t t h e p o i n t before the C o m m i t t e e w a s
a difficult one, a n d h e w a s s o r r y t h a t t h e S u b - C o m m i t t e e h a d n o t been able to m a k e
a n a g r e e d r e c o m m e n d a t i o n , t h o u g h h e a p p r e c i a t e d t h e h e s i t a n c y of t h e C h a i r m a n
t o exercise a c a s t i n g vote. I n view of t h e d i s c u s s i o n w h i c h h a d now t a k e n p l a c e , h e
felt t h a t t h e r e w a s no a l t e r n a t i v e to r e s e r v i n g -the m a t t e r for decision by t h e C a b i n e t .
H e r e f e r r e d to a p a s s a g e i n t h e R e p o r t of t h e I n d i a n S t a t u t o r y Commission (Vol. I )
i n r e g a r d t o t h e role of t h e B r i t i s h A r m y i n I n d i a , w h i c h h a d some b e a r i n g on t h e
u s e of t h e a r m y i n s u p p o r t of t h e civil p o w e r , a n d m i g h t be r e a d in connection w i t h
t h e use of m i l i t a r y forces i n P a l e s t i n e .
T h e r e w a s one s u g g e s t i o n w h i c h t h e
C o m m i t t e e m i g h t like to consider, n a m e l y , t h a t t h e Officer c o m m a n d i n g t h e m i l i t a r y
force w h i l e r e m a i n i n g u n d e r t h e o r d e r s of t h e A i r Officer c o m m a n d i n g s h o u l d be
g i v e n t h e r i g h t of d i r e c t access, on p u r e l y m i l i t a r y m a t t e r s , to t h e H i g h C o m
m i s s i o n e r , w h o is also ex officio
Commander-in-Chief.
T h i s w o u l d a p p l y , in a n inverse f o r m , t h e system n o w i n o p e r a t i o n i n I n d i a ,
w h i c h , he w a s i n f o r m e d , w o r k e d s a t i s f a c t o r i l y . U n d e r t h i s system, t h e A i r Officer
c o m m a n d i n g , a l t h o u g h u n d e r t h e o r d e r s of t h e m i l i t a r y C o m m a n d e r - i n - C h i e f , h a s t h e
r i g h t of d i r e c t access t o the Viceroy.
[21389^3]
B 2
S I R J O H N C H A N C E L L O R observed t h a t a t t h e p r e s e n t t i m e h e f r e q u e n t l y
s a w a n d consulted t h e officer c o m m a n d i n g t h e t r o o p s , w i t h t h e k n o w l e d g e a n d consent
of t h e A i r Officer c o m m a n d i n g .
M R . S H A W s a i d h e h o p e d t h a t t h e S e c r e t a r y of S t a t e for A i r w o u l d w i t h d r a w
from his present position.
H e a s k e d if a n y o n e could possibly d o u b t t h a t , in t h e
event of t h e s i t u a t i o n i n P a l e s t i n e t a k i n g a n u n f a v o u r a b l e t u r n , r e i n f o r c e m e n t s
Avould h a v e t o be m i l i t a r y , j u s t a s t h e y w e r e l a s t A u g u s t . H e could n o t u n d e r s t a n d
w h y i t should be m a i n t a i n e d t h a t i t w a s less of a m i l i t a r y f u n c t i o n to s t o p
i n d i v i d u a l s s m a s h i n g t h e e n t i t y of t h e S t a t e from i n s i d e t h a n to p r e v e n t t h e m
d o i n g so if they c a m e f r o m o u t s i d e . S u r e l y i t w a s a d v i s a b l e for t h e c o m m a n d e r t o
be a m i l i t a r y officer, so t h a t h e could deal s y s t e m a t i c a l l y w i t h t h e p r e p o n d e r a t i n g
m i l i t a r y t r o o p s i n t h e c o u n t r y a n d w i t h t h e q u e s t i o n of a d d i t i o n a l m i l i t a r y
r e i n f o r c e m e n t s i n t h e e v e n t of a n emergency.
Wnile greatly regretting that this
c o n t r o v e r s y h a d a r i s e n , h e felt t h a t t h e S e c r e t a r y of S t a t e for A i r s h o u l d r e a l i s e
t h e a c t u a l facts of t h e s i t u a t i o n a n d a g r e e t h a t t h e y w a r r a n t e d c o m m a n d by a
m i l i t a r y officer.
L O R D T H O M S O N s a i d h e w i s h e d h e w a s i n a p o s i t i o n to accede t o t h e r e q u e s t
of t h e S e c r e t a r y of S t a t e for W a r , b u t h e felt h e should p o i n t o u t t h a t it w a s t h e
l a t t e r w h o w a s t r y i n g to a l t e r a s t a t e of affairs a g r e e d t o i n 1922 u n d e r w h i c h t h e
C o l o n i a l Office w e r e r e s p o n s i b l e for P a l e s t i n e a n d T r a n s - J o r d a n , w i t h t h e A i r
M i n i s t r y a s t h e i r m i l i t a r y a g e n t . H e s u b m i t t e d t h a t if t h e r e a l m i l i t a r y problem
a n d t h e problem of g r e a t e s t d a n g e r t o P a l e s t i n e h a d t o be d e a l t w i t h , t h i s w o u l d
have to be done b y a i r forces.
T h e s i t u a t i o n ' i n s i d e P a l e s t i n e d i d n o t affect t h e
q u e s t i o n of c o m m a n d , w h i c h w o u l d n o t h a v e now a r i s e n if t h e r e h a d been a n a d e q u a t e
P o l i c e F o r c e . T h e t w o b a t t a l i o n s w e r e d i s t r i b u t e d e x a c t l y a s if t h e y w e r e police.
T h e r e a l d a n g e r l a y in t h e p o s s i b i l i t y of i n v a s i o n by t h e A r a b s , a n d t h e d a n g e r s p o t
w o u l d be t h e J o r d a n V a l l e y , w h e r e t h e r e w e r e n o m i l i t a r y forces a n d w h e r e B r i t i s h
t r o o p s could not be s t a t i o n e d .
S I R J O H N C H A N C E L L O R r e m a r k e d t h a t t h e r e w e r e t w o C o m p a n i e s of t h e
T r a n s - J o r d a n Frontier Force in the J o r d a n Valley a n d t h a t they were military
t r o o p s , in s p i t e of t h e f a c t t h a t t h e y w e r e u n d e r t h e A i r Officer c o m m a n d i n g .
L O R D T H O M S O N , continuing, pointed out t h a t the A i r M i n i s t r y h a d a
definite A i r Scheme d r a w n u p for t h e whole of t h e M i d d l e E a s t . I f some of t h e i r
forces w e r e now t o be t a k e n a w a y a n d locked u p u n d e r m i l i t a r y c o m m a n d for police
w o r k , t h e A i r M i n i s t r y w o u l d h a v e to r e c o n s i d e r t h e whole q u e s t i o n of t h e d i s t r i b u
t i o n of A i r Forces i n t h e M i d d l e E a s t . W h a t w a s r e a l l y r e q u i r e d to m e e t t h e p r e s e n t
s i t u a t i o n i n P a l e s t i n e w a s a n a d e q u a t e force of g e n d a r m e r i e .
S I R J O H N C H A N C E L L O R observed t h a t t h e f u n c t i o n s of police a n d t r o o p s
w e r e e n t i r e l y different a n d t h a t t h e g e n d a r m e r i e w o u l d h a v e t o be t r a i n e d a s m i l i t a r y
t r o o p s , a n d not as police, t o u n d e r t a k e the f u n c t i o n s r e q u i r e d of t h e m i n t h e event of
an outbreak.
L O R D T H O M S O N drew attention to the fact that the two i n f a n t r y battalions
w e r e s c a t t e r e d , a c c o r d i n g t o M r . D o w b i g g i n ' s R e p o r t , over a v e r y l a r g e a r e a in t h e
s a m e w a y as police forces, a n d t h a t if t h e y w e r e i n t e n d e d for e m p l o y m e n t as m i l i t a r y
t r o o p s t h i s w o u l d n o t b e t h e case.
S I R J O H N C H A N C E L L O R a g r e e d t h a t t h a t d i s t r i b u t i o n w a s shown in
M r . D o w b i g g i n ' s r e p o r t , b u t s a i d t h a t the d i s p e r s i o n w a s t e m p o r a r y a n d w a s only
n e c e s s a r y u n t i l t h e B r i t i s h p a r t of t h e P a l e s t i n e Police F o r c e h a d been b r o u g h t u p to
the proper establishment.
W h e n t h a t h a d been done, t h e t r o o p s w o u l d be
concentrated.
CONCLUSIONS.
A f t e r some f u r t h e r discussion t h e
r e c o m m e n d :—
C O M M I T T E E OF I M P E R I A L D E F E N C E
agreed to
(a) T h a t t h e g a r r i s o n s h o u l d c o n t i n u e t o include, for t h e p r e s e n t , a n i n f a n t r y
force e q u i v a l e n t to t w o b a t t a l i o n s , a n d t h a t t h e p r e s e n t s t r e n g t h of
a i r c r a f t a n d a r m o u r e d c a r s i n P a l e s t i n e a n d T r a n s - J o r d a n should be
maintained.
(b) T h a t t h e s t r e n g t h of t h e g a r r i s o n s h o u l d be r e v i e w e d a n n u a l l y b y t h e
C o m m i t t e e of I m p e r i a l Defence, a n d t h a t , i n t h i s connection, t h e
p o s s i b i l i t y of s u b s t i t u t i n g a force of B r i t i s h g e n d a r m e r i e for t h e i n f a n t r y
b a t t a l i o n s m i g h t be f u r t h e r considered.
(c) T h a t t h e D e p a r t m e n t s c o n c e r n e d should c o n s i d e r t h e r e c o m m e n d a t i o n for
s t a t i o n i n g a n R . A . S . C . u n i t , w i t h s u i t a b l e t r a n s p o r t , in P a l e s t i n e t o
a v o i d t h e p r e s e n t e x p e n s i v e s y s t e m of h i r i n g , a n d s h o u l d r e p o r t t o t h e
C a b i n e t w h e t h e r , on financial g r o u n d s , t h e s u g g e s t i o n is d e s i r a b l e .
(d) T h a t if t h e r e c o m m e n d a t i o n i n \a) above i s a p p r o v e d b y t h e C a b i n e t , the.
q u e s t i o n of p r o v i d i n g s u i t a b l e a c c o m m o d a t i o n for t h e g a r r i s o n s h o u l d be
t a k e n u p b y t h e D e p a r t m e n t s concerned.
(e) T h a t t h e P r i m e M i n i s t e r , t o g e t h e r w i t h t h e S e c r e t a r i e s of S t a t e for t h e
Colonies, W a r a n d A i r , s h o u l d c o n s i d e r f u r t h e r t h e q u e s t i o n of. t h e
C o m m a n d i n P a l e s t i n e a n d r e p o r t t h e r e s u l t of t h e i r discussion t o t h e
Cabinet.
*
2, Whitehall
July
*
Gardens,
14, 1930.
*
*
S.W.1,
o
*
*
THIS DOCUMENT IS THE P R O P E R T Y O F HIS BRITANNIC M A J E S T V S
Printed
for the Committee
of Imperial
Defence.
June
GOVERNMENT,
1930.
Copy N o.
SECRET. -
87
348-C.
(Also Papers Nos. CCS.
amdP.G.S.
5.)
241
COMMITTEE OF I M P E R I A L DEFENCE.
PALESTINE
(Previous
C.I.D.
GARRISON.
Paper
No.
345-C.)
Report of a Sub-Committee.
Composition
1.
and
Terms
of
Reference.
B Y d i r e c t i o n of t h e P r i m e M i n i s t e r t h e S u b - C o m m i t t e e , c o n s i s t i n g
T h e S e c r e t a r y of S t a t e for t h e Colonies (in the
of—
Chair),
T h e S e c r e t a r y of S t a t e f o r W a r ,
T h e S e c r e t a r y of S t a t e for A i r ,
T h e Secretary to the Treasury,
T h e C h i e f of t h e I m p e r i a l G e n e r a l Staff,
T h e C h i e f of t h e A i r Staff,
w a s set u p t o c o n s i d e r a n d r e p o r t to t h e C o m m i t t e e of I m p e r i a l D e f e n c e on t h e
following q u e s t i o n s r a i s e d by t h e S e c r e t a r y of S t a t e for t h e Colonies i n a l e t t e r ,
d a t e d t h e 1 2 t h M a y , 1930 ( A p p e n d i x ) , t o t h e S e c r e t a r y , C o m m i t t e e of I m p e r i a l
Defence : —
(1) T h e s t r e n g t h , c o m p o s i t i o n , & c , of t h e f u t u r e g a r r i s o n i n P a l e s t i n e ;
(2) T h e s u g g e s t e d t r a n s f e r of c o n t r o l from t h e A i r M i n i s t r y t o t h e W a r Office;
and
(3) T h e c o n t r o l of o p e r a t i o n s i n t h e e v e n t of r e i n f o r c e m e n t s b e i n g s e n t t o
Palestine.
The
Strength,
Composition,
&c,
of the future
Garrison
in
Palestine
2.
I n 1926 t h e l a s t r e m a i n i n g r e g u l a r a r m y u n i t , a r e g i m e n t of c a v a l r y , w a s
w i t h d r a w n f r o m P a l e s t i n e , a n d t h e r e a f t e r t h e forces a v a i l a b l e for t h e m a i n t e n a n c e
of i n t e r n a l o r d e r a n d for e x t e r n a l defence consisted solely of t h e P a l e s t i n e P o l i c e
( i n c l u d i n g a s m a l l p r o p o r t i o n of B r i t i s h p e r s o n n e l ) , t h e T r a n s - J o r d a n F r o n t i e r F o r c e
a n d A i r a n d A r m o u r e d C a r U n i t s of t h e R o y a l A i r F o r c e .
I"2127/] [21404]
."
B
2
3 . O n t h e o u t b r e a k of d i s t u r b a n c e s in A u g u s t 1929 n a v a l a n d m i l i t a r y
r e i n f o r c e m e n t s w e r e r u s h e d to P a l e s t i n e f r o m M a l t a a n d E g y p t t o restore o r d e r , a n d
a t t h e p r e s e n t t i m e t h e r e r e m a i n i n P a l e s t i n e , i n a d d i t i o n to one B . A . F . S q u a d r o n
a n d t w o A r m o u r e d C a r Sections (from T r a n s - J o r d a n ) , t w o B a t t a l i o n s of r e g u l a r
British Infantry.
4. T h e q u e s t i o n of t h e p e r m a n e n t g a r r i s o n w a s r e f e r r e d to by t h e
C o m m i s s i o n on t h e P a l e s t i n e d i s t u r b a n c e s i n t h e f o l l o w i n g w o r d s :-—
recent
" T h e events of A u g u s t l a s t clearly e s t a b l i s h e d t h a t f o r t h e d u t i e s of
checking the widespread disturbances a n d restoring order in Palestine i n f a n t r y
a r e m o r e effective t h a n a r e e i t h e r a e r o p l a n e s or a r m o u r e d c a r s . On t h e w i d e r
q u e s t i o n w h e t h e r a e r o p l a n e s a n d a r m o u r e d c a r s a r e t h e m o s t s u i t a b l e f o r m of
g a r r i s o n for P a l e s t i n e t h e r e w a s d i r e c t conflict b e t w e e n t h e evidence of t h e
e x p e r t s who a p p e a r e d before u s , a n d we c a n only s u g g e s t t h a t t h i s q u e s t i o n
should be c o n s i d e r e d by t h e p r o p e r a d v i s e r s of H i s M a j e s t y ' s G o v e r n m e n t , whose
a t t e n t i o n should, w e consider, be d r a w n to t h e views expressed t o us by
Vice-Marshal Dowding and Brigadier Dobbie.
W e r e c o m m e n d t h a t u n t i l t h e q u e s t i o n of t h e f o r m of t h e f u t u r e g a r r i s o n
h a s been decided a n d t h e r e a f t e r u n t i l r a c i a l f e e l i n g i n P a l e s t i n e h a s shown
m o r e m a r k e d i m p r o v e m e n t , no r e d u c t i o n should be m a d e i n t h e p r e s e n t g a r r i s o n
of t w o B a t t a l i o n s of I n f a n t r y . "
5. I n a d e s p a t c h d a t e d t h e 1 7 t h J a n u a r y , 1930, t h e H i g h C o m m i s s i o n e r for
P a l e s t i n e also e x p r e s s e d t h e v i e w " t h a t t h e p e r m a n e n t g a r r i s o n i n P a l e s t i n e should
i n c l u d e t w o B a t t a l i o n s of B r i t i s h I n f a n t r y w i t h t h e n e c e s s a r y a n c i l l a r y s e r v i c e s . "
6. T h e s t r e n g t h of t h e m i l i t a r y forces r e q u i r e d i n P a l e s t i n e m u s t necessarily
d e p e n d to a l a r g e e x t e n t on t h e efficiency of t h e local police forces, a n d M r . D o w
b i g g i n , I n s p e c t o r - G e n e r a l of Police, Ceylon, w h o is a t p r e s e n t i n P a l e s t i n e for t h e
p u r p o s e of a d v i s i n g on t h e o r g a n i s a t i o n of t h e P a l e s t i n e P o l i c e , h a s n o t yet s u b m i t t e d
h i s final r e p o r t . A p r e l i m i n a r y s t a t e m e n t of h i s r e c o m m e n d a t i o n s w i t h r e g a r d to
d i s t r i b u t i o n of t h e B r i t i s h police a n d t h e p r o t e c t i o n of J e w i s h Colonies h a s , however,
been received, a n d these r e c o m m e n d a t i o n s , w h i c h h a v e been a p p r o v e d by t h e S e c r e t a r y
of S t a t e for t h e Colonies, a r e b a s e d on t h e f o l l o w i n g a s s u m p t i o n s m a d e by M r .
Dowbiggin—
(i) t h a t m i l i t a r y forces a n d B r i t i s h police w i l l be r e q u i r e d in P a l e s t i n e for a t
least t w e n t y y e a r s ;
(ii) t h a t t h e g a r r i s o n w i l l i n c l u d e t w o i n f a n t r y b a t t a l i o n s a n d t w o c o m p a n i e s of
t h e T r a n s - J o r d a n F r o n t i e r F o r c e , a s well a s t h e R o y a l A i r F o r c e a n d
armoured cars.
7. M r . D o w b i g g i n h a s e x p r e s s e d t h e o p i n i o n t h a t i t w i l l t a k e a t l e a s t t w e n t y
y e a r s u n d e r t h e most f a v o u r a b l e c o n d i t i o n s to a t t a i n a r e a s o n a b l e s t a t e of efficiency
a m o n g t h e P a l e s t i n i a n police, a n d a l t h o u g h he is i n full a g r e e m e n t w i t h t h e well
r e c o g n i s e d p r i n c i p l e t h a t i t is p r i m a r i l y t h e f u n c t i o n of t h e police a n d n o t of t h e
m i l i t a r y to p r e v e n t a n d to d e a l w i t h d i s t u r b a n c e s , h e is convinced t h a t m i l i t a r y forces
s h o u l d be a v a i l a b l e to a s s i s t t h e civil p o w e r should t h e necessity a r i s e .
8. T h e S u b - C o m m i t t e e h a v e been u n a b l e t o a p p r e c i a t e t h e " c o n f l i c t of
e v i d e n c e " a s to t h e m o s t s u i t a b l e f o r m of g a r r i s o n to w h i c h t h e S h a w C o m m i s s i o n
r e f e r r e d on p a g e 145 of t h e i r R e p o r t .
Both A i r Vice-Marshal Dowding and
B r i g a d i e r Dobbie a p p e a r to consider t h a t an i n f a n t r y force of t w o b a t t a l i o n s is
n e c e s s a r y for t h e p r e s e n t , t h o u g h t h e f o r m e r t h i n k s t h a t t h i s force could be r e d u c e d
to one b a t t a l i o n w h e n t h e r e o r g a n i s a t i o n of t h e P o l i c e F o r c e h a s been completed.
W h i l e a g r e e i n g t h a t a force e q u i v a l e n t to t w o b a t t a l i o n s of I n f a n t r y will be n e c e s s a r y
for some t i m e to come, t h e S u b - C o m m i t t e e w o u l d h e s i t a t e to e n d o r s e t h e o p i n i o n t h a t
i t w o u l d be r e q u i r e d " f o r a t l e a s t t w e n t y y e a r s . "
9. T h e A i r M i n i s t r y a r e , however, in some d o u b t a s to w h e t h e r , on g r o u n d s of
e x p e d i e n c y ' a n d economy, t h i s force s h o u l d t a k e t h e f o r m of B r i t i s h I n f a n t r y
B a t t a l i o n s . T h e y p o i n t o u t t h a t i t h a s for m a n y y e a r s been t h e policy of H i s
M a j e s t y ' s G o v e r n m e n t to d i s c o u r a g e t h e p r o v i s i o n of I m p e r i a l F o r c e s f o r m a i n
t a i n i n g t h e a u t h o r i t y of Local G o v e r n m e n t s . T h e r e a s o n s u n d e r l y i n g t h i s policy
h a v e been f r e q u e n t l y e n u n c i a t e d by t h e Oversea D e f e n c e C o m m i t t e e w h e n making
r e c o m m e n d a t i o n s r e g a r d i n g t h e local forces i n t h e Colonies i n t h e following w o r d s :
" T h e m a i n t e n a n c e of I m p e r i a l r e g u l a r g a r r i s o n s , e x c e p t a t s t r a t e g i c a l p o i n t s ,
i n t i m e of peace i n t h e B r i t i s h Colonies a n d P r o t e c t o r a t e s w o u l d be a costly system,
w o u l d r e s u l t in h i g h l y t r a i n e d t r o o p s b e i n g used for p u r p o s e s for w h i c h a g r e a t
p a r t of t h e i r m i l i t a r y i n s t r u c t i o n i s n o t s u i t e d , a n d w o u l d h a v e m a n y obvious d i s
a d v a n t a g e s a s r e g a r d s t h e o r g a n i s a t i o n , t r a i n i n g , e x p e n d i t u r e a n d m o b i l i s a t i o n of
the A r m y as a whole."
T h e y f u r t h e r p o i n t o u t t h a t t h e i n f a n t r y force a l l o t t e d to P a l e s t i n e
will be t i e d down to t h e i n t e r n a l s e c u r i t y of t h a t c o u n t r y , a n d n o t a v a i l a b l e for
r e i n f o r c i n g o t h e r localities, a n d t h e y consider t h a t - t h i s f a c t o r should be b o r n e i n
mind i n a r r i v i n g a t a decision a s to h o w t h i s a d d i t i o n a l c o m m i t m e n t is to be p r o v i d e d
for.
10. F o r these r e a s o n s t h e A i r M i n i s t r y suggest t h a t (as soon a s m a y be p r a c
ticable) c o n s i d e r a t i o n s h o u l d b e given t o t h e p o s s i b i l i t y of r a i s i n g a n i r r e g u l a r force
of British
G e n d a r m e r i e , t h e o r g a n i s a t i o n Of which could be d e s i g n e d s p e c i a l l y t o
e n a b l e i t to c a r r y o u t i t s f u n c t i o n s i n t h e most economical m a n n e r . T h i s force, t h o u g h
a d m i n i s t e r e d by t h e P a l e s t i n e G o v e r n m e n t s i m i l a r l y t o t h e T r a n s - J o r d a n F r o n t i e r
F o r c e , w o u l d be a definitely m i l i t a r y one a n d w o u l d b e p l a c e d u n d e r t h e o r d e r s of
t h e officer c o m m a n d i n g t h e g a r r i s o n , t o w h a t e v e r service h e m a y belong.
W h i l e r a i s i n g no o b j e c t i o n t o t h e s u g g e s t e d discussion of t h i s q u e s t i o n a t some
f u t u r e d a t e , t h e Colonial Office a s k t h a t t h e y s h o u l d b e g i v e n a n o p p o r t u n i t y t o p u t
f o r w a r d t h e i r v i e w s b e f o r e a n y decision t o r e p l a c e t h e B r i t i s h I n f a n t r y i s m a d e .
1 1 . T h e p r e s e n t i n f a n t r y force (or t h e g e n d a r m e r i e , if formed) r e q u i r e s
m e c h a n i c a l t r a n s p o r t . T h e S u b - C o m m i t t e e consider t h a t , so long a s t h e r e g u l a r
i n f a n t r y b a t t a l i o n s a r e r e t a i n e d , t h i s t r a n s p o r t s h o u l d be p r o v i d e d by a n R . A . S . C .
unit w i t h motor lorries, which would u n d e r t a k e both t h e maintenance a n d movement
of t h e t r o o p s , t h u s d i s p e n s i n g w i t h t h e e x p e n s i v e s y s t e m of h i r i n g s w h i c h e x i s t s
a t present.
12. T h e q u e s t i o n of p r o v i d i n g s u i t a b l e a c c o m m o d a t i o n f o r t h e g a r r i s o n s h o u l d
also, i n t h e o p i n i o n of t h e C o m m i t t e e , receive i m m e d i a t e a t t e n t i o n . T h e b a t t a l i o n s
a r e a t p r e s e n t l i v i n g partXv i n billets a n d p a r t l y i n h u t m e n t s , a n d , if t h e i r r e t e n t i o n
i n P a l e s t i n e for a n indefinite n e r i o d i s decided u p o n , i t i s c o n s i d e r e d e s s e n t i a l t h a t
h u t t e d c a m p s w i t h a p r o p o r t i o n of m a r r i e d Quarters, r e c r e a t i o n a l f a c i l i t i e s , & o ,
s h o u l d b e p r o v i d e d for t h e w n o i e g a r r i s o n .
13.
T o sum u p , t h e S u b - C o m m i t t e e recommend—
(a) T h a t t h e g a r r i s o n s h o u l d c o n t i n u e t o i n c l u d e for t h e p r e s e n t a n i n f a n t r y
forqe e q u i v a l e n t t o t w o b a t t a l i o n s , a n d t h a t t h e p r e s e n t s t r e n g t h o f
a i r c r a f t a n d a r m o u r e d c a r s i n P a l e s t i n e a n d T r a n s - J o r d a n s h o u l d be
maintained.
(6) T h a t t h e s t r e n g t h of t h e g a r r i s o n s h o u l d b e reviewed a n n u a l l y by t h e
C o m m i t t e e of I m p e r i a l Defence, a n d t h a t i n t h i s connection t h e
possibility of s u b s t i t u t i n g a force of B r i t i s h G e n d a r m e r i e for t h e
i n f a n t r y b a t t a l i o n s m i g h t be f u r t h e r c o n s i d e r e d .
(c) T h a t t h e force b e p r o v i d e d w i t h m e c h a n i c a l t r a n s p o r t , a n d t h a t , so long
as the infantry battalions are retained, this t r a n s p o r t should take t h e
f o r m of a R . A . S . C . u n i t .
(d) T h a t t h e q u e s t i o n of a c c o m m o d a t i o n should be t a k e n u p by t h e D e p a r t
m e n t s c o n c e r n e d a s soon a s a decision h a s been r e a c h e d a s to t h e n a t u r e
of t h e g a r r i s o n .
The Suggested
Transfer
of Control
from
the Air Ministry
to the War
Office.
14. I n c o n s i d e r i n g t h i s q u e s t i o n , t h e S u b - C o m m i t t e e a r e faced w i t h a d i r e c t
conflict of o p i n i o n b e t w e e n t h e W a r Office a n d t h e A i r M i n i s t r y , a n d t h e y h a v e
r e l u c t a n t l y come t o t h e conclusion t h a t t h e y c a n d o n o m o r e t h a n place before t h e
C o m m i t t e e of I m p e r i a l D e f e n c e t h e views of t h e t h r e e p a r t i e s concerned, n a m e l y ,
t h e H i g h C o m m i s s i o n e r , t h e W a r Office a n d t h e A i r M i n i s t r y , a n d leave i t to h i g h e r
a u t h o r i t y t o come t o a decision.
15. T h e H i g h C o m m i s s i o n e r , w h o i s p r i m a r i l y responsible t o H i s M a j e s t y ' s
G o v e r n m e n t for p u b l i c s e c u r i t y i n P a l e s t i n e , h a s a d v o c a t e d t h e t r a n s f e r of c o m m a n d
from t h e A i r M i n i s t r y t o t h e W a r Office i n t h e following w o r d s : —
" D u r i n g t h e r e c e n t d i s t u r b a n c e s , by f a r t h e g r e a t e r p a r t of t h e w o r k of
r e s t o r i n g o r d e r fell u p o n t h e M i l i t a r y F o r c e s , a n d i t is logical t h a t t h e u l t i m a t e
r e s p o n s i b i l i t y for t h e defence of t h e c o u n t r y s h o u l d r e s t w i t h the D e p a r t m e n t
m a i n l y concerned.
I f r e s p o n s i b i l i t y for t h e defence of P a l e s t i n e is t r a n s f e r r e d to t h e W a r
Office, I r e c o m m e n d t h a t , for defence p u r p o s e s , P a l e s t i n e should be m a d e p a r t
of t h e E g y p t i a n M i l i t a r y C o m m a n d .
T h a t a r r a n g e m e n t w o u l d be n o t only economical a n d a d m i n i s t r a t i v e l y
c o n v e n i e n t , b u t i t w o u l d a l s o be s t r a t e g i c a l l y a d v a n t a g e o u s , for i t w o u l d
g r e a t l y f a c i l i t a t e t h e r e i n f o r c e m e n t of t h e t r o o p s i n P a l e s t i n e i n t i m e of n e e d "
( E n c l o s u r e No. 4 to A p p e n d i x , p a r a g r a p h 100).
The views
of the War Office are as
follows:—
16.—(i) U n d e r e x i s t i n g c o n d i t i o n s t h e m i l i t a r y C o m m a n d of all r e g u l a r forces
i n P a l e s t i n e a n d T r a n s - J o r d a n is vested i n a n officer of t h e R o y a l A i r F o r c e . T h i s
w a s t h e system of c o m m a n d i n o p e r a t i o n before A u g u s t , 1929, w h e n t h e only l a n d
forces a v a i l a b l e for b a c k i n g t h e police a m o u n t e d t o 12 a r m o u r e d c a r s a n d a b o u t
700 m e n of t h e T r a n s - J o r d a n F r o n t i e r F o r c e . T h e d e s p a t c h of a r m y r e i n f o r c e m e n t s ,
a m o u n t i n g t o some 2,000 i n f a n t r y a n d 12 a r m o u r e d c a r s i n A u g u s t last y e a r t o d e a l
w i t h t h e c o m m u n a l s i t u a t i o n w h i c h a r o s e r e s u l t e d i n t h e t e m p o r a r y t r a n s f e r e n c e of
t h e e x e c u t i v e c o m m a n d to a m i l i t a r y officer w h o w a s senior i n r a n k to t h e L o c a l A i r
F o r c e C o m m a n d e r . T h e o p e r a t i o n s w e r e definitely m i l i t a r y as o p p o s e d t o a i r a n d
i n a c c o r d a n c e w i t h t h e a g r e e m e n t come to by t h e C h i e f s of Staff a t t h e i r 2 6 t h M e e t i n g
on t h e 1 1 t h D e c e m b e r , 1925, t h e c o m m a n d of t h e o p e r a t i o n , being e s s e n t i a l l y m i l i t a r y
i n c h a r a c t e r s h o u l d i n a c c o r d a n c e w i t h t h a t a g r e e m e n t , h a v e been t r a n s f e r r e d t o a
m i l i t a r y officer u n d e r t h e W a r Office. I n o r d e r , however, to r e g a i n e x e c u t i v e
c o m m a n d i n P a l e s t i n e , a n officer of t h e R o y a l A i r F o r c e , a n Air V i c e - M a r s h a l , w a s
a p p o i n t e d by t h e A i r M i n i s t r y t o s u p e r s e d e t h e B r i g a d i e r w h o h a d so successfully
c o n d u c t e d t h e o p e r a t i o n s w h i c h c u l m i n a t e d i n t h e r e s t o r a t i o n of l a w a n d o r d e r .
An
officer of t h e R o y a l A i r F o r c e s t i l l r e m a i n s i n c o m m a n d a l t h o u g h t h e m i l i t a r y forces
i n t h e c o u n t r y a r e n u m e r i c a l l y f a r s u p e r i o r t o t h e a i r u n i t s even t h o u g h levies a n d
a r m o u r e d c a r u n i t s (both of w h i c h , t h e W a r Office p o i n t o u t , a r e ' ' m i l i t a r y ' ' r a t h e r
t h a n " a i r " i n c h a r a c t e r ) a r e i n c l u d e d i n t h e t e r m " a i r u n i t s . " T h e c o n t e n t i o n of
t h e A i r M i n i s t r y t h a t t h e d e f e n c e of P a l e s t i n e is a n " a i r " r a t h e r t h a n a " m i l i t a r y "
p r o b l e m is h a r d l y reconcilable w i t h t h e f a c t t h a t a g a r r i s o n h a s been a g r e e d u p o n
a s b e i n g necessary w h i c h i n c l u d e s local m i l i t a r y forces a n d a r m o u r e d c a r s a n d i n
which regular infantry preponderates.
(ii) T h e view of t h e A i r M i n i s t r y t h a t defence of t h e l a n d f r o n t i e r t a k e s
p r e c e d e n c e over o t h e r p r o b l e m s in c o n s i d e r i n g t h e s e c u r i t y of P a l e s t i n e is n o t
c o n c u r r e d i n . A d m i t t e d l y , p e r i o d i c a l r a i d s by A r a b s across the f r o n t i e r will
c o n t i n u e a n d these c a n best be d e a l t w i t h by h i g h l y mobile forces c o - o p e r a t i n g w i t h
a i r u n i t s . B u t i n v a s i o n on a l a r g e scale is u n l i k e l y t o occur u n l e s s it coincides w i t h
g r a v e d i s t u r b a n c e s i n t h e c o u n t r y itself, w h e n t h e c o m m a n d m u s t be unified.
(iii) W h i l e a e r o p l a n e s a n d a r m o u r e d c a r s c a n d e a l effectively w i t h r a i d s by
B e d o u i n s i n t h e o p e n a n d s p a r s e l y - p o p u l a t e d r e g i o n s of E a s t e r n T r a n s - J o r d a n , t h e y
c a n n o t a d e q u a t e l y p r o v i d e for t h e defence of P a l e s t i n e . T h e y a r e u n a b l e t o
u n d e r t a k e m a n y of t h e m i l i t a r y o p e r a t i o n s n e c e s s a r y for t h e defence a n d m a i n t e n a n c e
of o r d e r i n a c o u n t r y w h i c h c o n t a i n s l a r g e t o w n s a n d p o p u l o u s d i s t r i c t s , often
enclosed a n d w^ooded, a n d of w h i c h a l a r g e a r e a consists of m o u n t a i n s a n d b r o k e n
country.
T h e y a r e u n a b l e to b r e a k u p r i o t o u s assemblies i n t o w n s w i t h n a r r o w a n d
t o r t u o u s s t r e e t s i n h a b i t e d by a m i x e d p o p u l a t i o n , or t o p r o t e c t a g r i c u l t u r a l colonies
from a t t a c k by d a y a n d n i g h t . T h e y a r e u n a b l e t o s u r r o u n d a n d s e a r c h v i l l a g e s or
t o r o u n d u p r o v i n g b a n d s of m a r a u d e r s . T o c a r r y o u t all these o p e r a t i o n s effectively
t h e r e i s no s u b s t i t u t e for i n f a n t r y , p r e f e r a b l y m a d e mobile by b e i n g p r o v i d e d w i t h
adequate motor transport.
(iv) T h e W a r Office a g r e e w i t h t h e p r i n c i p l e t h a t t h e defence of P a l e s t i n e
a g a i n s t e x t e r n a l a g g r e s s i o n is i n t e r l o c k e d w i t h t h e i n t e r n a l s e c u r i t y of the c o u n t r y ,
a n d it w o u l d obviously be of a s s i s t a n c e t o t h e H i g h C o m m i s s i o n e r if h e h a d only one
m i l i t a r y a d v i s e r to t u r n t o for b o t h q u e s t i o n s . T h a t does n o t , however, seem to t h e m
t o be a n a r g u m e n t a g a i n s t c o n c e n t r a t i n g t h e c o m m a n d of all t h e forces i n T r a n s J o r d a n a n d P a l e s t i n e u n d e r a n a r m y c o m m a n d e r . T h e v i e w of t h e A i r M i n i s t r y
seems to be t h a t , w h i l e a n officer of t h e R . A . F . is c a p a b l e of e x e r c i s i n g m i l i t a r y
c o m m a n d over c o m b i n e d a i r a n d l a n d forces, t h e exercise of c o m m a n d by a n a r m y
officer over s i m i l a r combined forces could only be t o c o u r t confusion, or even d i s a s t e r .
N o a r g u m e n t s a r e a d v a n c e d to s u p p o r t t h i s c o n t e n t i o n , a n d i n t h i s connection, i t
should be n o t e d t h a t n o m i l i t a r y force w o u l d be e x p e c t e d t o t a k e t h e field in a m o d e r n
w a r w i t h o u t i n c l u d i n g a i r u n i t s u n d e r t h e m i l i t a r y c o m m a n d e r ; all senior officers of
t h e a r m y a r e a c c o r d i n g l y t r a i n e d i n t h e h a n d l i n g of A i r F o r c e s i n c o n j u n c t i o n w i t h
M i l i t a r y Forces.
(v) I t a p p e a r s t o be a d m i t t e d t h a t i n t h e event of further
military reinforce
m e n t s b e i n g d e s p a t c h e d t o P a l e s t i n e , o p e r a t i o n s w o u l d be v e s t e d i n a M i l i t a r y officer,
a s w a s done l a s t A u g u s t in t h e i n i t i a l a n d m o r e c r i t i c a l s t a g e s of t h e d i s t u r b a n c e s .
I t is, however, u n s o u n d a n d illogical t o rely o n o n e s y s t e m i n peace or w h e n t h i n g s
g o well, a n d t o r e v e r t t o a n o t h e r i n w a r , o r w h e n t r o u b l e s b r e a k o u t . W h a t e v e i
e x t e r n a l d a n g e r s m a y t h r e a t e n P a l e s t i n e or T r a n s - J o r d a n , t h e r e could be l i t t l e d o u b t
t h a t t h e r e c u r r e n c e of c o m m u n a l t r o u b l e i n t h e f u t u r e , w h i c h is r e g a r d e d as a
p o s s i b i l i t y by t h e H i g h Commissioner, w i l l be a m a t t e r w h i c h , if it g e t s beyond t h e
c o n t r o l of trie police, w i l l call definitely for i n t e r v e n t i o n by Army a n d n o t by A i r
u n i t s . T h e only s o u n d course w o u l d , t h e r e f o r e , be t o allow c o m m a n d to be e x e r c i s e d
i n peace by a M i l i t a r y officer, w h o w o u l d be r e s p o n s i b l e for t h e p r e p a r a t i o n of t h e
d e f e n c e scheme w h i c h w i l l be p u t i n t o o p e r a t i o n if a n d w h e n i n t e r n a l t r o u b l e s b r e a k
o u t a g a i n . T h e p r o p i n q u i t y of E g y p t a n d i t s m i l i t a r y g a r r i s o n p o i n t s t o t h e
s u p r e m e c o m m a n d of P a l e s t i n e b e i n g p l a c e d u n d e r t h e G e n e r a l Officer C o m m a n d i n g
B r i t i s h t r o o p s i n E g y p t . A l t h o u g h h e r e t o f o r e , P a l e s t i n e h a s n o t been h i s r e s p o n s i
b i l i t y , y e t t h e call for r e i n f o r c e m e n t s w h i c h a r o s e l a s t y e a r n e c e s s i t a t e d t h e
i m m e d i a t e d e s p a t c h of t h e n e a r e s t t r o o p s , n a m e l y , t h o s e f r o m Egypt, a n d a n y f u r t h e r
call for i m m e d i a t e r e i n f o r c e m e n t s m a y h a v e to be met from t h e same q u a r t e r .
At
t h e p r e s e n t m o m e n t , t h e e x i s t i n g r e s p o n s i b i l i t i e s of t h e G.O.C., E g y p t , d o n o t
e x t e n d beyond t h e b o r d e r s of t h a t c o u n t r y , a n d a call f r o m P a l e s t i n e for reinforce
m e n t s m a y q u i t e conceivably coincide w i t h a d e m a n d for d e a l i n g w i t h a s i t u a t i o n
within E g y p t , w h i c h h a s a r i s e n f r o m t h e v e r y s a m e causes w h i c h h a v e p r o d u c e d
d i s o r d e r i n P a l e s t i n e . H e m a y , t h e r e f o r e , w e l l be faced w i t h a conflict between h i s
local r e s p o n s i b i l i t i e s a n d a call on h i s t r o o p s for o p e r a t i o n s i n a c o u n t r y for t h e
m i l i t a r y c o n t r o l of w h i c h he is i n no w a y r e s p o n s i b l e . F u r t h e r , t h e difficult s i t u a t i o n
w i t h w h i c h h e m a y be faced is n o t r e n d e r e d a n y e a s i e r by t h e f a c t t h a t t h e u l t i m a t e
r e s p o n s i b i l i t y for m i l i t a r y s e c u r i t y i n P a l e s t i n e a n d i n E g y p t r e s t s , a t p r e s e n t , w i t h
t w o different Service M i n i s t r i e s i n L o n d o n .
I t is t h e r e f o r e c o n s i d e r e d t h a t t h e r e s p o n s i b i l i t i e s of t h e G . O . C . B r i t i s h t r o o p s
i n E g y p t s h o u l d be e x t e n d e d , so as t o i n c l u d e c o m m a n d of all t h e M i l i t a r y forces i n
P a l e s t i n e . I n t i m e s of emergency, t h e H i g h C o m m i s s i o n e r will t h e n be i n a p o s i t i o n
t o deal d i r e c t w i t h a M i l i t a r y Officer who h a s been able to s t u d y local p r o b l e m s a n d
w h o will be i n a p o s i t i o n to j u d g e of t h e m i l i t a r y r e i n f o r c e m e n t s w h i c h s h o u l d be
s e n t to cope w i t h t h e s i t u a t i o n .
(vi) F i n a l l y , t h e W a r Office consider t h a t t h e m a i n defence problem of P a l e s t i n e
a n d t h e c o m p o s i t i o n of t h e g a r r i s o n , Avhich is a g r e e d to be necessary, b o t h p o i n t t o
t h e d e s i r a b i l i t y of v e s t i n g t h e c o m m a n d of the forces i n a M i l i t a r y Officer.
S u c h a n Officer s h o u l d be responsible to t h e H i g h C o m m i s s i o n e r for b o t h i n t e r n a l
s e c u r i t y a n d e x t e r n a l defence of t h e c o u n t r y .
If t h e forces i n T r a n s - J o r d a n r e m a i n a s e p a r a t e C o m m a n d u n d e r a E . A . F .
Officer, t h e r e is no r e a s o n to e x p e c t difficulties i n r e g a r d to m u t u a l s u p p o r t a n d
c o - o p e r a t i o n . O n t h e o t h e r h a n d , if a s i n g l e M i l i t a r y c o m m a n d for T r a n s - J o r d a n
a n d P a l e s t i n e is d e c i d e d u p o n , t h e M i l i t a r y c o m m a n d e r should, w i t h t h e a d v i c e of
t h e Senior R . A . F . Officer in r e g a r d to a i r m a t t e r s , be able to d e a l w i t h all p r o b l e m s
of i n t e r n a l a n d e x t e r n a l security as efficiently a s t h e p r e s e n t A i r Officer C o m m a n d i n g .
The views of the Air Ministry
may be summarised
as
follows:—
17.—(i) T h o u g h t h e t e r m s of r e f e r e n c e of t h e S u b - C o m m i t t e e a r e concerned only
w i t h P a l e s t i n e , the p r o b l e m of t h e m i l i t a r y s e c u r i t y of t h a t c o u n t r y is i n d i s s o l u b l y
connected w i t h t h a t of T r a n s - J o r d a n , since i t is t h e l a t t e r c o u n t r y w h i c h forms a
buffer a g a i n s t e x t e r n a l a g g r e s s i o n , a n d i n w h i c h forces for defence a g a i n s t s u c h
a g g r e s s i o n m u s t p r i n c i p a l l y be located. F u r t h e r m o r e , i t is from T r a n s - J o r d a n t h a t
i n r o a d s on a considerable scale m a y be e x p e c t e d t o come in s u p p o r t of r e n e w e d A r a b
a g g r e s s i o n a g a i n s t e i t h e r J e w i s h c o m m u n i t i e s or a g a i n s t t h e G o v e r n m e n t itself.
T h e forces w h i c h h a v e h i t h e r t o been p r o v i d e d for, a n d w h i c h h a v e successfully
achieved, these p u r p o s e s a r e A i r F o r c e s s u p p o r t e d by a r m o u r e d c a r s a n d local levies,
a n d t h e r e can be n o d o u b t t h a t t h e system e m p l o y e d is t h e most economical a n d
efficient i n p r a c t i c e .
S h o u l d t h e forces i n P a l e s t i n e be s e p a r a t e d f r o m those i n
T r a n s - J o r d a n a n d p l a c e d u n d e r t h e W a r Office, m u c h o v e r l a p p i n g of defence
r e s p o n s i b i l i t i e s Avould r e s u l t , t h e p o w e r of r a p i d m u t u a l r e i n f o r c e m e n t w o u l d be lost,
a d u p l i c a t i o n of h e a d q u a r t e r staffs a n d a n c i l l a r y services w o u l d be needed, a n d t h e
H i g h Commissioner himself w o u l d h a v e t w o m i l i t a r y a u t h o r i t i e s w i t h w h i c h to d e a l
i n r e s p e c t of t w o c o u n t r i e s whose e x t e r n a l defence problems a r e i d e n t i c a l .
(ii) I t is observed t h a t t h e W a r Office h a v e stressed t h e s o m e w h a t obvious
l i m i t a t i o n s of a i r c r a f t in t h e s u p p o r t of civil p o w e r i n l a r g e t o w n s a n d p o p u l o u s
d i s t r i c t s . T h a t l a n d forces a r e p r e f e r a b l e for t h i s p u r p o s e i s , a n d a l w a y s h a s been,
c l e a r l y recognised by t h e A i r Staff. B u t i t m u s t equally be r e a l i s e d t h a t t h e
j u s t i f i c a t i o n f o r t h e i r presence is t h a t they s h o u l d be i m m e d i a t e l y a v a i l a b l e t o
r e i n f o r c e t h e police i n t h e e v e n t of serious d i s t u r b a n c e s . T h e i r f u n c t i o n s a r e t h u s ,
a s t h e e v e n t s of last y e a r proved, of a police r a t h e r t h a n of a s t r i c t l y m i l i t a r y n a t u r e ,
a n d a l t h o u g h t h e y a r e n u m e r i c a l l y s t r o n g e r t h a n t h e a i r a n d associated u n i t s , t h i s
f a c t s h o u l d n o t be r e g a r d e d a s one c o n n o t i n g t h e a s s u m p t i o n of c o n t r o l by t h e W a r
Office. T h e p r i n c i p a l m i l i t a r y p r o b l e m i n t h i s a s i n o t h e r c o u n t r i e s i s t h a t of
e x t e r n a l defence, and, a s such, s h o u l d r e m a i n a n A i r M i n i s t r y r e s p o n s i b i l i t y , b u t i t
m a y be r e l e v a n t to r e m a r k t h a t t h e r e is n o i n t e n t i o n t h a t t h e i n f a n t r y forces
o p e r a t i n g in s u p p o r t of t h e police s h o u l d be p l a c e d u n d e r t h e d i r e c t c o m m a n d of a
R o y a l A i r F o r c e officer. T h e p r e s e n t s y s t e m u n d e r w h i c h t h e r e is a n Officer C o m
m a n d i n g M i l i t a r y F o r c e s ( u n d e r t h e g e n e r a l c o n t r o l of t h e A i r Officer C o m m a n d i n g )
w o u l d be c o n t i n u e d , a n d t h e D e f e n c e S c h e m e w o u l d , of course, be p r e p a r e d i n
c o n j u n c t i o n w i t h t h i s officer a n d (so f a r as r e i n f o r c e m e n t s a r e concerned) w i t h t h e
military authorities in E g y p t .
(iii) I t h a s been s u g g e s t e d t h a t t h e A i r F o r c e s r e s p o n s i b l e for defence a g a i n s t
e x t e r n a l a g g r e s s i o n s h o u l d be s u b o r d i n a t e d t o t h e m i l i t a r y officer c o m m a n d i n g t h e
t r o o p s r e s p o n s i b l e for s u p p o r t i n g t h e civil p o w e r i n case of i n t e r n a l d i s o r d e r .
T h e r e a r e serious objections t o a n y such p r o p o s a l . T h e s t r e n g t h s of t h e A i r F o r c e s
i n t h e v a r i o u s c o u n t r i e s in t h e M i d d l e E a s t h a v e been c a l c u l a t e d on t h e a s s u m p t i o n
t h a t t h e y will be c a p a b l e of r a p i d m u t u a l r e i n f o r c e m e n t in emergency, a n d n o t one of
t h e m c a n be r e g a r d e d a l o n e a s sufficient f o r all possible c o n t i n g e n c i e s i n t h e c o u n t r y
i n w h i c h i t is located. S h o u l d t h e A i r F o r c e s i n P a l e s t i n e a n d T r a n s - J o r d a n be
s u b o r d i n a t e d to a m i l i t a r y c o m m a n d e r r e s p o n s i b l e to t h e W a r Office, t h i s p o w e r of
r a p i d m u t u a l r e i n f o r c e m e n t w i l l be lost so f a r a s t h o s e c o u n t r i e s a r e concerned a n d
t h e s t r e n g t h of t h e A i r F o r c e s n o w a l l o t t e d t o M i d d l e E a s t e r n c o u n t r i e s w i l l r e q u i r e
r e c a l c u l a t i o n i n o r d e r t o p r o v i d e a sufficient m a r g i n of safety for each.
(iv) T h e r e is a f u r t h e r o b j e c t i o n to such a p r o p o s a l . T h e success w h i c h h a s
h i t h e r t o a t t e n d e d a i r o p e r a t i o n s i n t h e u n d e v e l o p e d c o u n t r i e s of t h e M i d d l e E a s t is
l a r g e l y a t t r i b u t a b l e to t h e r a p i d i t y of decision a n d s u b s e q u e n t a c t i o n o b t a i n e d by
close a n d c o n s t a n t c o n s u l t a t i o n b e t w e e n t h e Officer A d m i n i s t e r i n g t h e G o v e r n m e n t
a n d t h e C o m m a n d e r of t h e A i r F o r c e s concerned. B y i n t e r p o s i n g a n a d d i t i o n a l l i n k
i n t h e c h a i n of c o m m a n d , t h i s e s s e n t i a l p r i n c i p l e , w h i c h h a s c o n s t a n t l y been s t r e s s e d
by t h e A i r Staff, would be sacrificed, a n d t h e y w o u l d b e u n a b l e to a c c e p t t h a t d e g r e e
of r e s p o n s i b i l i t y for t h e e x t e r n a l defence of T r a n s - J o r d a n a n d P a l e s t i n e by m e a n s of
a i r p o w e r which they a r e confidently p r e p a r e d t o d o u n d e r the. e x i s t i n g o r g a n i s a t i o n .
(v) 1 he W a r Office h a v e e x p r e s s e d t h e v i e w t h a t a n A r m y officer is j u s t a s
c a p a b l e a s a n A i r F o r c e officer of e x e r c i s i n g c o m m a n d over combined a i r a n d l a n d
forces, a n d t h e y p o i n t o u t t h a t all senior A r m y officers a r e t r a i n e d i n t h e c o - o p e r a t i o n
of a i r w i t h m i l i t a r y forces. A p a r t from t h e a r g u m e n t s c o n t a i n e d i n s u b - p a r a g r a p h s
(iii) a n d (iv) above, t h e A i r M i n i s t r y c o n s i d e r t h a t t h i s view, so f a r as i t concerns t h e
p a r t i c u l a r c i r c u m s t a n c e s of P a l e s t i n e a n d T r a n s - J o r d a n , is b a s e d on a m i s c o n c e p t i o n .
T h e policy u n d e r l y i n g t h e e m p l o y m e n t of m i l i t a r y u n i t s i n s u p p o r t of t h e civil p o w e r
i s p e r f e c t l y u n d e r s t o o d a n d is i n n o w a y c o n t r o v e r s i a l , since i t a p p r o x i m a t e s to t h a t
g o v e r n i n g police action. M o r e o v e r , t h e r e w o u l d be no q u e s t i o n of i n t e r f e r e n c e w i t h
t h e m e t h o d s a d o p t e d by t h e Officer C o m m a n d i n g t h e i n f a n t r y force i n P a l e s t i n e ; in
p o i n t of f a c t , t h e t w o A r e a C o m m a n d e r s i n P a l e s t i n e a r e p l a c e d in d i r e c t c o n t a c t
w i t h t h e P o l i t i c a l Officers c o n t r o l l i n g those a r e a s . T h e p r i n c i p l e s g o v e r n i n g t h e
e m p l o y m e n t of a i r power, on t h e o t h e r h a n d , a r e n e i t h e r well u n d e r s t o o d nor u n c o n t r o
versial.
I n T r a n s - J o r d a n , t h e a i r o p e r a t i o n s a r e n o t of t h e n a t u r e of A r m y
c o - o p e r a t i o n in w h i c h senior A r m y officers a r e t r a i n e d , since t h e y involve t h e employ
m e n t of a i r p o w e r a s a p r i m a r y offensive a r m ; s u c h o p e r a t i o n s r e q u i r e c o n s t a n t a n d
close c o n t r o l by t h e A i r Officer C o m m a n d i n g , i n c o n s u l t a t i o n w i t h t h e H i g h Com
m i s s i o n e r , w h o h a s himself p l a c e d c o n s i d e r a b l e r e s t r i c t i o n s u p o n t h e i r scope u n d e r
v a r y i n g c i r c u m s t a n c e s . T h e r e h a v e , u n f o r t u n a t e l y , been several occasions u p o n w h i c h
t h e A i r Staff h a v e felt compelled to c o m m e n t on t h e i n c o r r e c t p r i n c i p l e s u p o n w h i c h
a i r p o w e r h a s been a p p l i e d i n o t h e r s p h e r e s u n d e r t h e d i r e c t i o n of m i l i t a r y officers.
T h o u g h i t is p e r h a p s n a t u r a l t h a t such cases s h o u l d occur i n t h e p r e s e n t s t a g e of a i r
development, t h e r e is no d o u b t t h a t for m a n y y e a r s to come, t h e a p p l i c a t i o n of a i r
p o w e r w i t h efficiency a n d economy can only be effected u n d e r t h e g u i d a n c e of t h o s e
w h o s e b u s i n e s s i t is to m a k e a close a n d c o n s t a n t s t u d y of t h e p r i n c i p l e s involved.
(vi) T h e W a r Office h a v e r e f e r r e d to t h e s i t u a t i o n t h a t w o u l d a r i s e i n t h e event
of f u r t h e r r e i n f o r c e m e n t s b e i n g d e s p a t c h e d to P a l e s t i n e , u n d e r w h i c h i t m i g h t be
d e e m e d n e c e s s a r y to vest t h e c o n t r o l of o p e r a t i o n s in a M i l i t a r y Officer as w a s d o n e
l a s t A u g u s t . T h e y m a i n t a i n t h a t i t is u n s o u n d a n d illogical to rely on one s y s t e m
w h e n t h i n g s go well a n d to a d o p t a n o t h e r w h e n t r o u b l e s b r e a k out. T h e A i r Staff
m u s t p o i n t o u t t h a t a n exactly s i m i l a r s i t u a t i o n m i g h t a r i s e if c o n t r o l w e r e t r a n s
f e r r e d to t h e W a r Office; e x t e r n a l a g g r e s s i o n m i g h t well develop to a n e x t e n t
d e m a n d i n g t h e r e i n f o r c e m e n t of t h e a i r u n i t s in T r a n s - J o r d a n a n d P a l e s t i n e , a n d
t h e b a l a n c e of r e s p o n s i b i l i t y m i g h t t h e r e b y be so c h a n g e d a s to j u s t i f y t h e a s s u m p t i o n
o f o p e r a t i o n a l control by t h e A i r M i n i s t r y . T h e decision as to t h e d e p a r t m e n t w h i c h
s h o u l d be i n control u n d e r n o r m a l c i r c u m s t a n c e s c a n n o t , i n t h e view of the A i r Staff,
be d i c t a t e d by h y p o t h e t i c a l c o n t i n g e n c i e s .
I t is n o more likely t h a t f u r t h e r
r e i n f o r c e m e n t s w i l l be r e q u i r e d in P a l e s t i n e t h a n i n I r a q , a n d a l i t e r a l a c c e p t a n c e of
t h e W a r Office c o n t e n t i o n w o u l d i m p l y t h a t m i l i t a r y c o n t r o l i n I r a q s h o u l d also be
t r a n s f e r r e d t o t h e W a r Office m e r e l y because t h e D e f e n c e Scheme i n force i n t h a t
c o u n t r y involves t h e d e s p a t c h of a r m y r e i n f o r c e m e n t s . I t w i l l be a p p r e c i a t e d t h a t
t h e r e s p e c t i v e r e s p o n s i b i l i t i e s of t h e Services a r e b o u n d to v a r y from t i m e to t i m e
u n d e r s t r e s s of c i r c u m s t a n c e s .
(vii) F i n a l l y , no survey of t h e r e l a t i v e m e r i t s of W a r Office a n d A i r M i n i s t r y
control w o u l d be complete- w i t h o u t a r e f e r e n c e to d e p a r t m e n t a l r e a c t i o n s a t h o m e .
U n d e r t h e e x i s t i n g r e g i m e t h e C o l o n i a l Office h a v e , g e n e r a l l y s p e a k i n g , a s i n g l e
service d e p a r t m e n t , n a m e l y , t h e A i r M i n i s t r y , a c t i n g a s t h e i r a g e n t s in r e s p e c t of
t h e M i d d l e E a s t e r n c o u n t r i e s for w h i c h t h e y a r e responsible, i.e., I r a q , P a l e s t i n e ,
T r a n s J o r d a n a n d A d e n . T h e a d v a n t a g e s of t h i s a r r a n g e m e n t a r e obvious, a n d
f u r n i s h t h e p r i n c i p a l r e a s o n u n d e r l y i n g t h e i n v i t a t i o n to t h e A i r M i n i s t r y bj^ t h e
C o l o n i a l Office i n 1922 to act as t h e i r a g e n t s i n P a l e s t i n e a n d T r a n s - J o r d a n .
Not
t h e l e a s t of t h e d r a w b a c k s of a t r a n s f e r e n c e of t h i s agency to t h e W a r Office w o u l d
l i e i n t h e fact t h a t t h e Service D e p a r t m e n t responsible for d e a l i n g w i t h the c o n s t a n t
i n c i d e n t s on t h e f r o n t i e r s of N e j d a n d H e j a z w o u l d , i n t h e case of t h e E a s t e r n
f r o n t i e r , be t h e A i r M i n i s t r y , a n d , i n t h a t of t h e W e s t e r n f r o n t i e r , t h e W a r Office.
The Control
of Operations
in the event
of Reinforcements
being
sent
to
Palestine.
18. T h i s q u e s t i o n is necessarily closely i n t e r l o c k e d w i t h t h e p r e v i o u s one. I n
t h e e v e n t of c o m m a n d b e i n g t r a n s f e r r e d from t h e A i r M i n i s t r y to t h e W a r Office,
i t w o u l d n o t a r i s e , since r e i n f o r c e m e n t s w o u l d i n all p r o b a b i l i t y be p r e p o n d e r a t i n g l y
military.
I f i t i s d e c i d e d t h a t a n officer of t h e R . A . F . should r e m a i n i n c o m m a n d in
n o r m a l t i m e s of peace, t h e C o m m i t t e e a r e of o p i n i o n t h a t effect should be given to
t h e r e c o m m e n d a t i o n of t h e C h i e f s of Staff a t t h e i r m e e t i n g of t h e 11th December,
1925.
T h i s r e c o m m e n d a t i o n w a s t h a t , " a s a m a t t e r of p r i n c i p l e , w h e n t h e
o p e r a t i o n s of a B r i t i s h force become d e p e n d e n t p r i m a r i l y on t h e l a n d forces, t h e
c o m m a n d should r e s t w i t h a M i l i t a r y officer, t h e s a m e p r i n c i p l e a p p l y i n g ,
mutatis
mutandis,
t o t h e forces of t h e o t h e r S e r v i c e s . "
(Signed)
PASSFIELD.
On behalf of t h e S u b - C o m m i t t e e .
2, Whitehall
Gardens,
S. W. 1,
June 27, 1930.
( C . I . D . P a p e r No. 3 4 5 - C - a l s o P . G . S . 2.)
APPENDIX.
Letter
from
the Colonial
Office to the Secretary,
Committee
with
Enclosures.
of Imperial
Defence,
(77023/30.)
Sir,
Downing
Street, Mcuy 12, 1930.
I A M d i r e c t e d b y L o r d Passfield to t r a n s m i t t o you, t o be l a i d before t h e
C o m m i t t e e of I m p e r i a l D e f e n c e , t h e following e x t r a c t ( E n c l o s u r e N o . 1) from t h e
d r a f t M i n u t e s of t h e F i r s t M e e t i n g of t h e P a l e s t i n e C a b i n e t C o m m i t t e e r e l a t i n g t o
g a r r i s o n q u e s t i o n s in P a l e s t i n e . A copy is also enclosed (Enclosure N o . 2) of the n o t e
by t h e S e c r e t a r y of S t a t e on t h e subject, w h i c h is r e f e r r e d to i n t h e d r a f t M i n u t e s .
2. I t will be observed t h a t t h e C o m m i t t e e a g r e e d to L o r d P a s s f i e l d ' s p r o p o s a l
t o r e f e r to t h e C o m m i t t e e of I m p e r i a l Defence, f o r t h e f a v o u r of t h e i r advice, t h e
f o l l o w i n g three q u e s t i o n s : —
(1) T h e s t r e n g t h , c o m p o s i t i o n , & c , of t h e f u t u r e g a r r i s o n i n P a l e s t i n e ;
(2) T h e s u g g e s t e d t r a n s f e r of control from t h e A i r M i n i s t r y to t h e W a r Office;
and
(3) T h e control of o p e r a t i o n s i n t h e event of r e i n f o r c e m e n t s b e i n g sent t o
Palestine.
3. I n t h i s connection r e f e r e n c e is i n v i t e d t o t h e e x t r a c t f r o m t h e R e p o r t o f
t h e C o m m i s s i o n o n t h e P a l e s t i n e D i s t u r b a n c e s , q u o t e d a t t h e b e g i n n i n g of t h e
S e c r e t a r y of S t a t e ' s n o t e ( E n c l o s u r e N o . 2) r e f e r r e d to above. T h e C o m m i s s i o n
s u g g e s t e d t h a t t h e q u e s t i o n of t h e m o s t s u i t a b l e form of g a r r i s o n for P a l e s t i n e
s h o u l d be considered by t h e a p p r o p r i a t e a d v i s e r s of H i s M a j e s t y ' s G o v e r n m e n t ,
w h o s e a t t e n t i o n should be d r a w n t o the views e x p r e s s e d to t h e m
by
A i r Vice-Marshal Dowding a n d Brigadier Dobbie. Those views have already been
c o m m u n i c a t e d to t h e C o m m i t t e e of I m p e r i a l Defence i n t h e copy of t h e t r a n s c r i p t
of n o t e s of evidence g i v e n b y t h e t w o officers c o n c e r n e d before t h e C o m m i s s i o n
( E n c l o s u r e N o . 3).
A t t e n t i o n i s also i n v i t e d t o t h e a c c o m p a n y i n g e x t r a c t
( E n c l o s u r e No. 4) from a d e s p a t c h from t h e H i g h C o m m i s s i o n e r for P a l e s t i n e ,
d a t e d t h e 17th J a n u a r y , 1930, i n w h i c h S i r J . C h a n c e l l o r discusses g a r r i s o n
q u e s t i o n s . A copy of t h e M e m o r a n d u m r e f e r r e d t o in p a r a g r a p h 92 of t h e d e s p a t c h
is also enclosed ( E n c l o s u r e N o . 5). I t w i l l be seen t h a t S i r J . C h a n c e l l o r c o n s i d e r s —
(a) t h a t the p e r m a n e n t g a r r i s o n of P a l e s t i n e should i n c l u d e t w o b a t t a l i o n s of
B r i t i s h I n f a n t r y , w i t h t h e necessary a n c i l l a r y s e r v i c e s ;
(b) t h a t r e s p o n s i b i l i t y for p u b l i c s e c u r i t y i n P a l e s t i n e s h o u l d be t r a n s f e r r e d
from t h e A i r M i n i s t r y t o t h e W a r Office;
(c) t h a t for defence p u r p o s e s P a l e s t i n e s h o u l d be m a d e p a r t of t h e E g y p t i a n
military command.
!
1
4. T h e p o s i t i o n w i t h r e g a r d to t h e r e - o r g a n i s a t i o n of t h e police i s t h a t t h e
S e c r e t a r y of S t a t e is s t i l l a w a i t i n g t h e final r e p o r t by M r . H . L . D o w b i g g i n . A s ,
h o w e v e r , is p o i n t e d o u t i n t h e S e c r e t a r y of S t a t e ' s n o t e to t h e P a l e s t i n e C a b i n e t
C o m m i t t e e (Enclosure N o . 2), t h e r e a p p e a r s to be n o necessity t o defer c o n s i d e r a t i o n
of g a r r i s o n questions p e n d i n g t h e r e c e i p t of t h a t r e p o r t , since M r . D o w b i g g i n ' s
v i e w s on police q u e s t i o n s , i n so f a r as t h e y affect t h e g a r r i s o n , h a v e a l r e a d y been
received i n h i s p r e l i m i n a r y s t a t e m e n t of r e c o m m e n d a t i o n s w i t h r e g a r d to t h e
d i s t r i b u t i o n of B r i t i s h police a n d t h e p r o t e c t i o n of J e w i s h Colonies. T h e s e views
a r e g i v e n i n t h e S e c r e t a r y of S t a t e ' s note r e f e r r e d to above ( E n c l o s u r e N o . 2).
5. L o r d Passfield w o u l d be g l a d if t h e C o m m i t t e e of I m p e r i a l D e f e n c e w o u l d
be good e n o u g h t o consider q u e s t i o n s (1) a n d (2) r e f e r r e d to i n p a r a g r a p h 2 of t h i s
l e t t e r i n t h e l i g h t of t h e c o n s i d e r a t i o n s set o u t above, a n d f u r n i s h t h e i r a d v i c e
t h e r e o n . A d e s p a t c h h a s r e c e n t l y been received from t h e H i g h C o m m i s s i o n e r f o r
P a l e s t i n e f o r w a r d i n g a copy of a l e t t e r sent t o t h e A i r M i n i s t r y by t h e A i r Officer
C o m m a n d i n g , P a l e s t i n e a n d T r a n s - J o r d a n , o u t l i n i n g the p r o p o s e d d i s t r i b u t i o n of
t h e M i l i t a r y a n d A i r F o r c e s t o p r o v i d e for t h e i n t e r n a l security of P a l e s t i n e .
C o p i e s of t h a t d e s p a t c h a n d enclosure (Enclosure N o . 6) a r e f o r w a r d e d h e r e w i t h , a s
t h e i n f o r m a t i o n given t h e r e i n m a y be of a s s i s t a n c e t o t h e C o m m i t t e e of I m p e r i a l
Defence in t h e c o n s i d e r a t i o n of t h e above t w o q u e s t i o n s .
6. I n t h e event of t h e C o m m i t t e e of I m p e r i a l D e f e n c e a d v i s i n g a g a i n s t t h e
s u g g e s t e d t r a n s f e r of control f r o m t h e A i r M i n i s t r y to t h e W a r Office, L o r d Passfield
w o u l d be g l a d of t h e i r a d v i c e o n t h e t h i r d q u e s t i o n r e f e r r e d to i n p a r a g r a p h 2 of
t h i s l e t t e r , n a m e l y , t h e control of o p e r a t i o n s i n t h e e v e n t of r e i n f o r c e m e n t s b e i n g
sent t o P a l e s t i n e . T h i s q u e s t i o n w a s r a i s e d in p a r a g r a p h 2 of a l e t t e r a d d r e s s e d b y
t h e W a r Office t o t h e C o l o n i a l Office, d a t e d t h e 2 0 t h F e b r u a r y , 1930, a copy of w h i c h
f o r m s E n c l o s u r e No. 7 t o t h i s l e t t e r . T h e q u e s t i o n w o u l d n o t , of course, a r i s e i n
t h e e v e n t of r e s p o n s i b i l i t y for p u b l i c s e c u r i t y i n P a l e s t i n e b e i n g t r a n s f e r r e d f r o m
t h e A i r M i n i s t r y t o t h e W a r Office.
I a m , &c.
O . G. R. W I L L I A M S .
ENCLOSURE
Extract
from
the Draft
Minutes
of the First
Committee,
tr
NO.
-Jv
1.
Meeting
of the Palestine
Cabinet
May 1, 1930.
vv
-TV
TAe Garrison in
Palestine.
T h e C o m m i t t e e h a d before t h e m a N o t e by t h e S e c r e t a r y of S t a t e for t h e Colonies
d e a l i n g w i t h t h e s t r e n g t h , c o m p o s i t i o n , & c , of t h e f u t u r e g a r r i s o n of P a l e s t i n e , a n d
t h e r e s p o n s i b i l i t y for p u b l i c s e c u r i t y i n t h a t c o u n t r y .
L O R D P A S S F I E L D s a i d t h a t h e p r o p o s e d , w i t h t h e c o n c u r r e n c e of t h e
C o m m i t t e e , t o r e f e r these q u e s t i o n s t o t h e C o m m i t t e e of I m p e r i a l D e f e n c e .
R e f e r r i n g t o t h e s u g g e s t i o n t h a t r e s p o n s i b i l i t y for p u b l i c s e c u r i t y s h o u l d be t r a n s
f e r r e d f r o m t h e A i r M i n i s t r y to t h e W a r Office, h e a s k e d L o r d T h o m s o n for h i s v i e w s .
L O R D T H O M S O N said t h a t the point was whether external and internal
defence w e r e t o be s e p a r a t e d i n t o t w o d e p a r t m e n t s i n v o l v i n g t w o h e a d q u a r t e r s i n
P a l e s t i n e . A s h e u n d e r s t o o d ife, t h e chief A r a b d a n g e r w a s t h e influx of A r a b s over
t h e T r a n s - J o r d a n b o r d e r i n t o P a l e s t i n e for t h e p u r p o s e of m u r d e r i n g J e w s . T h e
o n l y effective w a y t o s t o p t h i s i n g r e s s w a s by m e a n s of a n a i r force i n T r a n s - J o r d a n .
T h e o t h e r p r o b l e m t o be f a c e d w a s a q u e s t i o n of k e e p i n g o r d e r i n t h e towns i n
P a l e s t i n e . A d m i t t e d l y , t h e A i r E o r c e could n o t d e a l w i t h t h i s , a n d t h e a n s w e r
a p p e a r e d t o be a n efficient police force. H e s u g g e s t e d i t w a s b a d b o t h f r o m t h e
m i l i t a r y a n d p o l i t i c a l p o i n t of v i e w t o k e e p s o l d i e r s i n P a l e s t i n e for m a i n t a i n i n g
i n t e r n a l o r d e r . I f r e s p o n s i b i l i t y for p u b l i c s e c u r i t y i n P a l e s t i n e w a s t r a n s f e r r e d to
t h e W a r Office, e i t h e r t w o h e a d q u a r t e r s w o u l d h a v e to be m a i n t a i n e d , o r t h e W a r
Office w o u l d h a v e t o t a k e over t h e defence of t h e T r a n s - J o r d a n f r o n t i e r , w h i c h , h e
considered, w a s a p u r e l y a i r p r o p o s i t i o n . T o d e f e n d t h i s f r o n t i e r w i t h t r o o p s w o u l d
be a v e r y l a r g e m i l i t a r y c o m m i t m e n t , a n d , u p to d a t e , all a t t e m p t s a t i n v a s i o n h a d
been effectively a n d c h e a p l y d e a l t w i t h by t h e A i r F o r c e .
M r . S H A W s a i d h e d i d n o t see why, if c i r c u m s t a n c e s h a d c h a n g e d , t h e l i m i t e d
a i r force i n T r a n s - J o r d a n s h o u l d n o t be p u t u n d e r t h e m i l i t a r y c o m m a n d i n
P a l e s t i n e , j u s t as t h e A i r Officer C o m m a n d i n g w a s n o w c o m m a n d i n g t h e t w o
battalions in Palestine.
L O R D T H O M S O N r e p l i e d t h a t , o w i n g t o t h e i r l a c k of s p e c i a l t r a i n i n g a n d
e x p e r i e n c e , m i l i t a r y officers could n o t be e x p e c t e d to d i r e c t t h e o p e r a t i o n s of a i r u n i t s
a s effectively as R o y a l A i r F o r c e Officers.
M r . H E N D E R S O N asked w h y t h e defence of T r a n s - J o r d a n s h o u l d n o t c o n t i n u e
on t h e s a m e lines as a t p r e s e n t .
L O R D P A S S F I E L D observed t h a t , i n h i s P a p e r , t h e r e w a s n o p r o p o s a l t h a t
b o t h T r a n s - J o r d a n a n d P a l e s t i n e s h o u l d be b r o u g h t u n d e r t h e s a m e m i l i t a r y
c o m m a n d . H e r e a d a n e x t r a c t f r o m t h e l e t t e r t o t h e T r e a s u r y ( P . C . (30) 3) r e g a r d i n g
t h e cost of t h e T r a n s - J o r d a n f r o n t i e r force. P a l e s t i n e w a s n o t in a p o s i t i o n t o m e e t
u n a i d e d t h e b u r d e n of m a i n t a i n i n g t h e police force, a n d of m a k i n g a c o n t r i b u t i o n o n
tihe p r e s e n t bases t o w a r d s t h e cost of t h e T r a n s - J o r d a n f r o n t i e r force (five-sixths)
a n d t h e B r i t i s h forces s t a t i o n e d i n P a l e s t i n e a n d T r a n s - J o r d a n (excess cost). T h e
H i g h C o m m i s s i o n e r h a d , t h e r e f o r e , asked t h a t P a l e s t i n e s h o u l d n o w b e a r n o t m o r e
t h a n two-fifths of t h e cost of t h e T r a n s - J o r d a n f r o n t i e r force.
L O R D T H O M S O N observed t h a t t h e W a r Office w a n t e d t o p l a c e t h e t w o
b a t t a l i o n s n o w i n P a l e s t i n e , w h i c h i t seemed m i g h t h a v e to r e m a i n t h e r e indefinitely,
u n d e r t h e E g y p t i a n c o m m a n d . T o h i s m i n d t h e big q u e s t i o n w a s w h e t h e r w e w e r e
g o i n g to c o n t i n u e u s i n g i n f a n t r y b a t t a l i o n s for t h e p r e s e r v a t i o n of i n t e r n a l o r d e r i n
Mandated Territories.
M r S H A W s a i d he w a s q u i t e a w a r e of t h e p o l i t i c a l objections to t h e use of
t r o o p s for t h i s p u r p o s e , b u t so long a s t h e r e w a s no a l t e r n a t i v e t h e y w o u l d h a v e t o
r e m a i n t h e r e . N o t h i n g would p l e a s e t h e W a r Office m o r e t h a n t o w i t h d r a w t h e t w o
battalions, a n d he knew t h a t the C.I.G.S. w a s strongly in favourof internal security
b e i n g u n d e r t a k e n by police forces. So long, however, as t h e t r o o p s were i n P a l e s t i n e ,
t h e n a t u r a l c e n t r e of c o n t r o l a p p e a r e d t o be t h e m i l i t a r y h e a d q u a r t e r s i n E g y p t .
H e w a s n o t p r e p a r e d to e n t e r i n t o t e c h n i c a l reasons, which, h e s u g g e s t e d , s h o u l d be
d e a l t w i t h by t h e C o m m i t t e e of I m p e r i a l Defence.
L O R D P A S S F I E L D , r e f e r r i n g t o t h e use of police for i n t e r n a l s e c u r i t y , s a i d
t h a t M r . D o w b i g g i n h a d r e c o m m e n d e d a n i n c r e a s e of t h e w h i t e police i n P a l e s t i n e t o
a b o u t 750, i n o r d e r t o p r o v i d e m o r e s e c u r i t y for t h e n u m e r o u s s c a t t e r e d J e w i s h
colonies. E v e n w i t h t h i s i n c r e a s e he could n o t g a r r i s o n more t h a n a p r o p o r t i o n of
t h e colonies, a n d for t h i s r e a s o n i t h a d been d e c i d e d t o r e t a i n sealed a r m o u r i e s u n d e r
t h e c o n t r o l of t h e v i l l a g e h e a d m e n . T h e r e w a s n o i n t e n t i o n of d i s p e r s i n g t h e t w o
infantry battalions unduly.
M R . S H A W r e m a r k e d t h a t t h e m a i n objections t o sealed a r m o u r i e s w a s t h a t
they provided irresponsible people with deadly weapons.
CONCLUSIONS.
(i) I t w a s a g r e e d t h a t L o r d Passfield should r e f e r to t h e C o m m i t t e e of I m p e r i a l
D e f e n c e t h e q u e s t i o n s r a i s e d i n P a p e r N o . P . C . (30) 5 * r e g a r d i n g t h e g a r r i s o n i n
P a l e s t i n e a n d t h e t r a n s f e r of r e s p o n s i b i l i t y for p u b l i c security, t o g e t h e r w i t h all
n e c e s s a r y i n f o r m a t i o n r e g a r d i n g t h e police d i s p o s i t i o n s .
(ii) L o r d Passfield u n d e r t o o k to m a k e e n q u i r i e s as to w h a t m o r a l p r e s s u r e could
be b r o u g h t t o b e a r on t h e J e w i s h p o p u l a t i o n t o a v o i d p r o v o c a t i v e i n c i d e n t s such a s
h a d been r e f e r r e d to.
^
-X
1
^
$fe
ENCLOSURE
No.
2.
[ P a p e r No. P . C . (30) 5.]
Note
by the Secretary
of State
for the
Colonies.
I W O U L D i n v i t e a t t e n t i o n to t h e f o l l o w i n g e x t r a c t from t h e R e p o r t of t h e
C o m m i s s i o n o n t h e P a l e s t i n e d i s t u r b a n c e s of A u g u s t 1929 ( p a g e 145) :—
" T h e e v e n t s of A u g u s t l a s t clearly established t h a t for t h e d u t i e s of
c h e c k i n g w i d e s p r e a d d i s t u r b a n c e s a n d restoring" o r d e r in P a l e s t i n e i n f a n t r y a r e
m o r e effective t h a n a r e e i t h e r a e r o p l a n e s o r a r m o u r e d c a r s . O n t h e w i d e r
q u e s t i o n w h e t h e r a e r o p l a n e s a n d a r m o u r e d c a r s a r e the m o s t s u i t a b l e f o r m of
g a r r i s o n for P a l e s t i n e t h e r e w a s d i r e c t conflict between t h e evidence of t h e
e x p e r t s w h o a p p e a r e d before u s , a n d w e c a n only suggest t h a t t h i s q u e s t i o n
s h o u l d be c o n s i d e r e d by t h e a p p r o p r i a t e a d v i s e r s of H i s M a j e s t y ' s G o v e r n m e n t ,
w h o s e a t t e n t i o n s h o u l d , w e consider, be d r a w n to t h e views e x p r e s s e d to u s by
A i r V i c e - M a r s h a l D o w d i n g a n d B r i g a d i e r Dobbie.
W e r e c o m m e n d t h a t , u n t i l t h e q u e s t i o n of t h e form of t h e f u t u r e g a r r i s o n
h a s been decided, a n d t h e r e a f t e r u n t i l r a c i a l feeling in P a l e s t i n e h a s s h o w n some
m a r k e d i m p r o v e m e n t , n o r e d u c t i o n should be m a d e in t h e p r e s e n t g a r r i s o n of
t w o b a t t a l i o n s of i n f a n t r y . "
A p a r t from t h e above q u e s t i o n , t h e r e h a v e also been r a i s e d t h e q u e s t i o n s
(a) w h e t h e r t h e r e s p o n s i b i l i t y f o r t h e defence of P a l e s t i n e should n o t be t r a n s f e r r e d
from t h e A i r M i n i s t r y to t h e W a r Office, a n d (b) w h e t h e r , w i t h o u t a l t e r i n g t h e
p r e s e n t g e n e r a l a r r a n g e m e n t s , t h e c o n t r o l of o p e r a t i o n s in t h e e v e n t of r e i n f o r c e
m e n t s b e i n g sent to P a l e s t i n e , s h o u l d n o t be vested i n t h e h a n d s of a m i l i t a r y
C o m m a n d e r . T h e first q u e s t i o n w a s r a i s e d by t h e H i g h C o m m i s s i o n e r for P a l e s t i n e
i n a Confidential d e s p a t c h , d a t e d t h e 1 7 t h J a n u a r y , 1930, w h i c h I c i r c u l a t e d tc
m e m b e r s of t h e C a b i n e t u n d e r cover of a m e m o r a n d u m , d a t e d t h e 2 7 t h M a r c h , 1930
* Printed as Enclosure No. 2 to this document.
( C . P . 108 (30) ). I n t h a t d e s p a t c h S i r J o h n C h a n c e l l o r e x p r e s s e d t h e f o l l o w i n g v i e w s
w i t h r e g a r d to t h e g a r r i s o n : —
1. T h a t t h e p e r m a n e n t g a r r i s o n in P a l e s t i n e should include t w o b a t t a l i o n s of
B r i t i s h i n f a n t r y w i t h t h e necessary a n c i l l a r y services.
2. T h a t r e s p o n s i b i l i t y for p u b l i c s e c u r i t y i n P a l e s t i n e s h o u l d b e t r a n s f e r r e d
f r o m t h e A i r M i n i s t r y to t h e W a r Office.
3. T h a t f o r defence p u r p o s e s P a l e s t i n e should be m a d e p a r t of t h e E g y p t i a n
m i l i t a r y command.
Q u e s t i o n (b) w a s r a i s e d i n p a r a g r a p h 5 of a l e t t e r a d d r e s s e d by t h e W a r Office
t o t h e A i r M i n i s t r y , 0 1 7 6 / 3 1 7 (M.O. 2), d a t e d t h e 2 0 t h F e b r u a r y , 1930 ( E n c l o s u r e
N o . 7).
A s my colleagues on t h e S u b - C o m m i t t e e a r e n o d o u b t a w a r e , M r . H . L . D o w b i g g i n ,
I n s p e c t o r - G e n e r a l of P o l i c e , Ceylon, is a t p r e s e n t i n P a l e s t i n e f o r t h e p u r p o s e of
a d v i s i n g on t h e o r g a n i s a t i o n of t h e P a l e s t i n e police. I h a v e n o t yet received h i s final
r e p o r t . H e h a s , however, s u b m i t t e d a p r e l i m i n a r y s t a t e m e n t of his r e c o m m e n d a t i o n s
w i t h r e g a r d t o t h e d i s t r i b u t i o n of B r i t i s h police a n d t h e p r o t e c t i o n of J e w i s h
colonies. T h e s e r e c o m m e n d a t i o n s , w h i c h I h a v e a p p r o v e d , a r e based on t h e
a s s u m p t i o n s (1) t h a t m i l i t a r y a n d B r i t i s h police will be r e q u i r e d i n P a l e s t i n e for a t
l e a s t 20 y e a r s ; (2) t h a t t h e g a r r i s o n w i l l i n c l u d e 2 I n f a n t r y b a t t a l i o n s , a n d
2 c o m p a n i e s of t h e T r a n s - J o r d a n F r o n t i e r F o r c e , a s well as t h e R o y a l A i r F o r c e a n d
A r m o u r e d C a r s . I t a p p e a r s t h a t , i n M r . D o w b i g g i n ' s o p i n i o n , it w i l l t a k e a t l e a s t
20 y e a r s , u n d e r t h e m o s t f a v o u r a b l e c o n d i t i o n s , t o a t t a i n a r e a s o n a b l e s t a t e of
efficiency a m o n g t h e P a l e s t i n i a n p o l i c e ; t h a t t h e f u n c t i o n s of t h e police s h o u l d b e to
p r e v e n t d i s t u r b a n c e s - w h e r e v e r p o s s i b l e ; a n d t h a t t h e m i l i t a r y should be called i n
t o a s s i s t t h e civil p o w e r only w h e n t h e necessity a r i s e s . I n view of t h e i n f o r m a t i o n
g i v e n i n M r . D o w b i g g i n ' s p r e l i m i n a r y s t a t e m e n t , i t seems u n n e c e s s a r y t o d e f e r
c o n s i d e r a t i o n of q u e s t i o n s r e l a t i n g to t h e g a r r i s o n p e n d i n g t h e r e c e i p t of h i s r e p o r t
on t h e o r g a n i s a t i o n of t h e police. I a m of t h e o p i n i o n t h a t these q u e s t i o n s c a n m o s t
s u i t a b l y be e x a m i n e d by t h e C o m m i t t e e of I m p e r i a l Defence. S u b j e c t , t h e r e f o r e ,
t o t h e c o n c u r r e n c e of m y colleagues, I p r o p o s e t o r e f e r t o t h a t body t h e f o l l o w i n g
questions :—
(1) T h e s t r e n g t h , c o m p o s i t i o n , & c , of t h e f u t u r e g a r r i s o n .
(2) T h e s u g g e s t e d t r a n s f e r of control f r o m t h e A i r M i n i s t r y t o t h e W a r Office.
(3) T h e control of o p e r a t i o n s i n t h e event of r e i n f o r c e m e n t s b e i n g sent t o
Palestine.
(Initialled)
Colonial
Office,
May
1, 1930.
ENCLOSURE No.
Transcript
P.
3.
of Notes and Evidence
by Brigadier
Bobbie and Air
Vice-Marshal
Dowding
given in c a m e r a before the Commission
of
Inquiry
I.
SUMMARY.
( P r e p a r e d by B r i g a d i e r Dobbie.)
1. T H E defence force for P a l e s t i n e s h o u l d be c a l c u l a t e d s e p a r a t e l y f r o m t h a t
for T r a n s - J o r d a n i a .
2. E x p e r i e n c e h a s shown t h a t P a l e s t i n e h a s a n e x t e r n a l as well a s a n i n t e r n a l
problem.
3. T h e defence of P a l e s t i n e s h o u l d be e n t r u s t e d t o t h e A r m y r a t h e r t h a n to t h e
Royal A i r Force.
4. R o y a l A i r F o r c e u n i t s by themselves a r e n o t s u i t e d t o t h e d u t i e s r e q u i r e d in
P a l e s t i n e . T h e y m a y be m o r e s u i t e d to T r a n s - J o r d a n i a .
(a) A e r o p l a n e s , n a t u r a l l y , c a n n o t be a l l o w e d to develop t h e i r full offensive
p o w e r , i.e., bombs a n d m a c h i n e - g u n fire.
(b) A e r o p l a n e a c t i o n c a n n o t b u t be i n d i s c r i m i n a t e . Difficult to d i s t i n g u i s h
f r i e n d from foe.
(c) A e r o p l a n e s c a n n o t o p e r a t e effectively a t n i g h t — w h e n t r o u b l e is m o s t likely
t o occur.
(d) A r m o u r e d c a r s a r e r e s t r i c t e d t o r o a d s . M a n y p a r t s of t h e c o u n t r y c a n n o t
be influenced by t h e m . T h e i r influence e x t e n d s s i m p l y t o t h e i r i m m e d i a t e
neighbourhood.
(e) U n e c o n o m i c a l t o u s e t h e m for s t a t i c d u t i e s .
(/) T h e p e o p l e of t h e c o u n t r y h a v e r e a l i s e d these l i m i t a t i o n s , a n d m o r a l effect
of a e r o p l a n e s a n d a r m o u r e d cars is consequently g r e a t l y d i m i n i s h e d .
5. T w o B r i t i s h b a t t a l i o n s (one a t J e r u s a l e m a n d one a t H a i f a ) , a n d some
a r m o u r e d c a r s should be n o r m a l g a r r i s o n . N . B . — P o s s i b l e one b a t t a l i o n m i g h t be
r e p l a c e d by a c a v a l r y r e g i m e n t — b u t t h i s w o u l d n o t be q u i t e so good.
6.
Bolice:—(a)
B u l k of police should be r e c r u i t e d f r o m o u t s i d e P a l e s t i n e .
(b) N u m b e r of B r i t i s h police s h o u l d be c o n s i d e r a b l y i n c r e a s e d t o
say 600.
II.
Evidence
of Brigadier
Palestine
Commission
Dobbie given before the Chairman
of Inquiry
i n c a m e r a on Wednesday,
and Members
of the
November 6, 1929.
C H A I R M A N : W e h a v e got t o m a k e r e c o m m e n d a t i o n s on t h e m a t t e r of s a f e
g u a r d i n g t h e c o u n t r y f r o m d i s t u r b a n c e s of t h i s n a t u r e in t h e f u t u r e ? — A . Yes.
Q. So w e w a n t e d to a s k y o u f r o m your e x p e r i e n c e i n t h e c o u n t r y w h i c h y o u
t h i n k w o u l d be t h e correct w a y i n w h i c h t o p r o t e c t t h e people of P a l e s t i n e f r o m
f u r t h e r o u t b r e a k s of t h i s n a t u r e . — A . Y o u k n o w I a m n o t i n c o m m a n d h e r e now so
i t is a l i t t l e difficult for m e to give advice.
C H A I R M A N : Y o u h a v e seen w h a t t r o u b l e a r i s e s a n d i t w o u l d be very v a l u a b l e
t o u s t o h a v e y o u r o p i n i o n on t h e subject.
S I R H E N R Y B E T T E R T O N : T h e difficulty t h e G e n e r a l is in
A. M y
p e r s o n a l o p i n i o n a s B r i g a d i e r D o b b i e I s h o u l d be g l a d t o give you, b u t A i r V i c e M a r s h a l D o w d i n g is m y chief a n d it is for h i m to t e n d e r official advice.
C H A I R M A N : W e c a n a s k h i s o p i n i o n a s well, but t h e r e is n o r e a s o n w h y y o u
s h o u l d n o t g i v e y o u r s . — A . I s h o u l d be g l a d t o give you m y views. I h a v e a l r e a d y
given them to him a n d he h a s forwarded them t o the A i r Ministry.
—A.
Q. I t h i n k w e h a d b e t t e r see h i m too, b u t I t h i n k we should l i k e to h e a r y o u r s .
Y o u w a n t i t i n very g e n e r a l t e r m s I t a k e i t .
Q. W e w i l l see w h a t you tell u s a n d t h e n w e c a n p u t a n y q u e s t i o n s w e w i s h t o
p u t . — A . T h e r e w e r e t w o t h i n g s t h a t s t r u c k m e . T h e defence force of t h i s c o u n t r y
w a s l u m p e d i n w i t h t h a t of T r a n s - J o r d a n before t h e troubles began. I t w a s T r a n s J o r d a n a n d P a l e s t i n e t o g e t h e r a n d so m a n y a e r o p l a n e s a n d a r m o u r e d c a r s w e r e
a l l o t t e d t o t h e m t o g e t h e r . I t h i n k t h e problems of t h e t w o c o u n t r i e s a r e so very
different f r o m e a c h o t h e r t h a t I t h i n k the defence forces for t h e t w o o u g h t t o be
c a l c u l a t e d s e p a r a t e l y . T h a t is t h e first p o i n t . A s r e g a r d s P a l e s t i n e I h a v e n o
d o u b t i n m y m i n d t h a t t h e p r o p e r k i n d of force t o have h e r e is a n a r m y force a n d
n o t a n a i r force. T h e a i r u n i t s t h a t t h e y h a v e h e r e , t h e a e r o p l a n e s a n d t h e a r m o u r e d
c a r s w h i c h a r e t h e only t w o k i n d s of t h i n g s t h a t t h e y c a n h a v e , n e i t h e r of t h e m , e i t h e r
s e p a r a t e l y or t o g e t h e r , c a n fill t h e bill. A e r o p l a n e s a r e r e a l l y a bluff. T h e only
t h i n g t h e y c a n do is to d r o p bombs o r to shoot w i t h t h e i r m a c h i n e - g u n s a n d t h e i r
a c t i o n is e x t r e m e l y i n d i s c r i m i n a t e a n d t h e p e o p l e of t h i s c o u n t r y , I a m p r e t t y sure,
h a v e n o w t a k e n t h e i r m e a s u r e , h a v e n o w r e a l i s e d t h a t t h e y a r e a bluff. I c a n n o t
i m a g i n e t h a t w e w o u l d n e v e r be w i l l i n g t o use t h e i r full p o w e r s because i t is
u n t h i n k a b l e . T h e y a r e i n d i s c r i m i n a t e . A r m o u r e d cars c a n only g e t w h e r e t h e r e
a r e good r o a d s o r r e a s o n a b l y good r o a d s a n d t h e c r e w i n t h e a r m o u r e d car is so small
i t c a n n o t get o u t a n d do s o m e t h i n g a t some d i s t a n c e off. T h e a r m o u r e d c a r c a n j u s t
e x e r t influence i n i t s own i m m e d i a t e v i c i n i t y . T h e r e a r e l o t s of p l a c e s w h i c h t h e y
c a n n o t g o t o i n t h e c o u n t r y a n d if you w a n t e d t o m a k e its influence felt r e a s o n a b l y
w i d e l y you w o u l d h a v e t o h a v e a t r e m e n d o u s lot of t h e m w h i c h w o u l d be v e r y e x p e n
sive a n d even so t h e y w o u l d n o t be able to fill t h e i r p u r p o s e .
Q. A n d a s to r i o t s i n t o w n s ? — A . I n t o w n s like t h e old C i t y of J e r u s a l e m they
a r e useless.
Q. A n d a e r o p l a n e s a n d a r m o u r e d c a r s ? — A . A e r o p l a n e s a n d a r m o u r e d cars,
t h e y a r e not, g e n e r a l l y s p e a k i n g , s u i t a b l e . T h e y a r e h i g h l y mobile t h i n g s ; they
c a n n o t n a t u r a l l y s t a y in o n e p a r t i c u l a r p l a c e . I t is a g r e a t w a s t e of effort to keep a n
a r m o u r e d c a r s t a t i o n a r y i n o n e p l a c e . I t s v a l u e is i n b e i n g able t o g e t f r o m one p l a c e
t o a n o t h e r quickly, b u t t h e r e a r e cases w h e r e y o u n e e d to h a v e p e o p l e s t a y i n g in a
p l a c e a n d a r m o u r e d c a r s a r e n o t t h e r i g h t s o r t of t i l i n g for that"
M R . S N E L L : W h e n y o u a r e t h i n k i n g of a n a r m o u r e d c a r a r e you t h i n k i n g of
i n f a n t r y ? — A . I m e a n a n a r m o u r e d c a r w i t h one m a c h i n e g u n i n a t u r r e t .
Q. I m e a n t i n y o u r advocacy of a n . a r m y r a t h e r t h a n a n a i r force y o u a r e
t h i n k i n g of a n i n f a n t r y force ? — A . I t h i n k t h e r e should be a n i n f a n t r y force here,
a n a r m y force. T h e a i r force, for some reason, h a v e a r m o u r e d c a r s a s p a r t a n d
p a r c e l of t h e i r force, but, of course, t h e a r m y h a v e a r m o u r e d c a r s as well. I f t h e
a i r force is r e s p o n s i b l e for t h e defence of t h e c o u n t r y all t h e t h i n g s t h e y h a v e g o t
t o p u t a r e e i t h e r a e r o p l a n e s o r a r m o u r e d c a r s a n d n e i t h e r of t h e m , I a m convinced,
w i l l m e e t t h e case. W e h a v e p r o v e d it, a n d f o u n d i t is so.
C H A I R M A N : T h e r e w o u l d h a v e to be b e s i d e t h a t a r e l i a b l e police force ?—
T h e defence force will be t h e reserve to t h e police.
Q. Y o u t h i n k i t i s a b s o l u t e l y necessary to h a v e a reserve force of i n f a n t r y ? —
A. I t h i n k so, yes, I t h i n k so. I f I w e r e responsible, if I w e r e t h e H i g h Com
m i s s i o n e r , I w o u l d n o t be h a p p y w i t h o u t such a force.
A.
Q. H o w m a n y d o y o u t h i n k t h e r e s h o u l d b e ? — A . N o r m a l l y , I t h i n k t w o
b a t t a l i o n s . I t h i n k t h a t w e m i g h t h a v e a t t a c h e d t o t h e i n f a n t r y a small n u m b e r of
a r m o u r e d c a r s to o p e r a t e on t h e f r o n t i e r s , b u t t h e y could be a r m y a r m o u r e d c a r s or
a i r force a r m o u r e d c a r s , w h i c h e v e r h a p p e n e d to be convenient, b u t t h e i n f a n t r y , i n
m y o p i n i o n , m u s t be t h e m a i n p a r t .
Q. Y o u w o u l d n o t p r o p o s e d o i n g a w a y w i t h t h e T r a n s - J o r d a n F r o n t i e r F o r c e ?
—A.
N o ; t h e y do n o t belong r e a l l y t o t h i s c o u n t r y . T h e y r e a l l y belong t o t h e o t h e r
s i d e , b u t I t h i n k you w a n t B r i t i s h u n i t s h e r e . T h a t is a n o t h e r t h i n g . I t h i n k you
w a n t B r i t i s h u n i t s . T h e T r a n s - J o r d a n f r o n t i e r force consists of n a t i v e p e r s o n n e l .
I t h a s B r i t i s h officers, b u t in t h e c i r c u m s t a n c e s w h i c h p r e v a i l i n t h i s c o u n t r y , w h e r e
t h e r e is t h e J e w a n d t h e A r a b , n e i t h e r of t h e m t r u s t i n g each o t h e r , t h e only p e r s o n
t h e y w i l l t r u s t is a n E n g l i s h m a n , a n d I t h i n k t h e force, w h a t e v e r i t is, should be
British.
Q. B o t h h e r e a n d in T r a n s - J o r d a n ? — A . I m e a n P a l e s t i n e . I a m only t a l k i n g
of P a l e s t i n e . I t h i n k the a i r force could c o n t i n u e t o o p e r a t e i n T r a n s - J o r d a n . T h e
c i r c u m s t a n c e s t h e r e a r e m o r e s u i t a b l e for t h e i r o p e r a t i o n s . I t is m o r e o p e n c o u n t r y .
T h e r e a r e n o t t h e big t o w n s a n d t h e r e is n o t t h e p o s s i b i l i t y of r i o t i n g a s t h e r e is i n
Palestine.
Q. H a v e you a n y views a b o u t t h e n u m b e r of B r i t i s h police t h e r e o u g h t to be
h e r e ? — A . T h e y o u g h t to be v e r y m u c h l a r g e r t h a n t h e y h a v e been. T h e r e is n o
q u e s t i o n a b o u t t h a t . I t i s r a t h e r difficult for m e t o s a y t h e n u m b e r , b u t I s h o u l d
t h i n k , a s a v e r y w i l d shot, it s h o u l d be i n t h e n e i g h b o u r h o o d of s i x or seven h u n d r e d ,
s o m e t h i n g of t h a t k i n d .
Q. T h o s e w o u l d h a v e to be c o n c e n t r a t e d i n t o w n s . T h e r e a r e n o p l a c e s for t h e m
t o live i n s m a l l d e t a c h m e n t s i n t h e villages ? — A . I h a v e n o t r e a l l y t h o u g h t o u t t h e
police d i s p o s i t i o n s i n a n y d e t a i l , b u t I w o u l d also s u g g e s t t h i s a b o u t t h e police, t h a t
t h e n o n - B r i t i s h police should n o t be r e c r u i t e d locally a n d if possible n o t be e i t h e r
Moslem or J e w . I t i s r a t h e r difficult t o find a n y o n e to fill t h e bill, c e r t a i n l y n o t
locally.
Q. E v e n in t h e t o w n s ? — A . Y o u could h a v e a c e r t a i n n u m b e r for j u s t s i m p l e
t h i n g s l i k e traffic control, t h e o r d i n a r y l i t t l e t h i n g s , b u t if you w a n t to d e p e n d OTI
t h e m i n a p i n c h , t h e local people I t h i n k will n o t be reliable.
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