Jews who have been the victims of Nazi and Fascist persecution; (b) that these certificates be awarded as far as possible in 1946 and that actual immigration be pushed forward as rapidly as conditions will permit.

Principles of Government: no Arab, no Jewish State.

Recommendation No. 3. In order to dispose, once and for all, of the exclusive claims of Jews and Arabs to Palestine, we regard it as essential that a clear statement of the following principles should be made:

I. That Jew shall not dominate Arab and Arab shall not dominate Jew in Palestine. II. That Palestine shall be neither a Jewish state nor an Arab state. III. That the form of government ultimately to be established, shall, under international guarantees, fully protect and preserve the interests in the Holy Land of Christendom and of the Moslem and Jewish faiths.

Thus Palestine must ultimately become a state which guards the rights and interests of Moslems, Jews and Christians alike; and accords to the inhabitants, as a whole, the fullest measure of selfgovernment, consistent with the three paramount principles set forth above.

Mandate and United Nations Trusteeship.

Recommendation No. 4. We have reached the conclusion that the hostility between Jews and Arabs and, in particular, the determination of each to achieve domination, if necessary by violence, make it almost certain that, now and for some time to come, any attempt to establish either an independent Palestinian state or independent Palestinian states would result in civil strife such as might threaten the peace of the world. We therefore recommend that, until this hostility disappears, the government of Palestine be continued as at present under mandate pending the execution of a trusteeship agreement under the United Nations.

Equality of Standards.

Recommendation No. 5. Looking towards a form of ultimate selfgovernment, consistent with the three principles laid down in recommendation No. 3, we recommend that the mandatory or trustee should proclaim the principle that Arab economic, educational and political advancement in Palestine is of equal importance with that of the Jews; and should at once prepare measures designed to bridge the gap which now exists and raise the Arab standard of living to that of the Jews; and so bring the two peoples to a full appreciation of their common interest and common destiny in the land where both belong.

Future Immigration Policy.

Recommendation No. 6. We recommend that pending the early reference to the United Nations and the execution of a trusteeship agreement, the mandatory should administer Palestine according to the mandate which declares with regard to immigration that "The administration of Palestine, while ensuring that the rights and position of other sections of the population are not prejudiced, shall facilitate Jewish immigration under suitable conditions."

Land Policy.

Recommendation No. 7. (a) We recommend that the land transfers regulations of 1940 be rescinded and replaced by regulations based on a policy of freedom in the sale, lease or use of land, irrespective of race, community or creed; and providing adequate protection for the interests of small owners and tenant cultivators. (b) We further recommend that steps be taken to render nugatory and to prohibit provisions in conveyances, leases and agreements relating to land which stipulate that only members of one race, community or creed may be employed on or about or in connection therewith. (c) We recommend that the Government should exercise such close supervision over the Holy Places and localities such as the Sea of Galilee and its vicinity as will protect them from desecration and from uses which offend the conscience of religious people; and that such laws as are required for this purpose be enacted forthwith.

Economic Development.

Recommendation No. 8. Various plans for large-scale agricultural and industrial development in Palestine have been presented for our consideration; these projects, if successfully carried into effect, could not only greatly enlarge the capacity of the country to support an increasing population, but also raise the living standards of Jew and Arab alike.

We are not in a position to assess the soundness of these specific plans; but we cannot state too strongly that, however technically feasible they may be, they will fail unless there is peace in Palestine. Moreover their full success requires the willing cooperation of adjacent Arab states, since they are not merely Palestinian projects. We recommend therefore that the examination, discussion and execution of these plans be conducted, from the start and throughout, in full consultation and cooperation not only with the Jewish agency but also with the governments of the neighboring Arab states directly affected.

Education.

Recommendation No. 9. We recommend that, in the interests of the conciliation of the two peoples and of general improvement of the Arab standard of living, the educational system of both Jews and Arabs be reformed including the introduction of compulsory education within a reasonable time.

The Need for Peace in Palestine.

Recommendation No. 10. We recommend that, if this report is adopted, it should be made clear beyond all doubt to both Jews and Arabs that any attempt from either side, by threats of violence, by terrorism, or by the organization or use of illegal armies to prevent its execution, will be resolutely suppressed.

Furthermore, we express the view that the Jewish agency should at once resume active cooperation with the mandatory in the suppression of terrorism and of illegal immigration, and in the maintenance of that law and order throughout Palestine which is essential for the good of all, including the new immigrants.

[Here follow Chapters II through X under the headings of: "The Position of the Jews in Europe"; "The Political Situation in Palestine";

"Geography and Economics"; "The Jewish Attitude"; "The Arab Attitude"; "Christian Interests in Palestine"; "Jews, Arabs and Government"; "Public Security"; and "General".]

The figures in this column include refugee as well as native Jews.

In 1937, the Jewish population of Austria was approximately 192,000. By the outbreak of the war, the emigration of over 100,000 together with persecution and deportations had reduced the number to some 60,000.

The figure refers to the Jewish population within pre-Munich boundaries, when the Jews of Czechoslovakia numbered about 360,000. By September 1939 due mainly to emigration, the number had fallen to approximately 315,000.

• Does not include such Jewish survivors as have remained in the Carpatho-Ukraine, this territory now in the Soviet Union.

According to the census of June 1933, the Jewish population of Germany totaled 499,682. By September 1939 the emigration of something over 200,000, persecution, and natural population decline had reduced the number to around 215,000.

The figure refers to the Jewish population within pre-Munich boundaries.

These figures do not include an estimated 15,000 prisoners of war now in the Soviet Union who are expected ultimately to be repatriated.

These figures do not include an estimated 150,000 Polish Jews in the Soviet Union, to whom the option of repatriation has been made available.

Inclusive of the Jewish population of Bessarabia and Bukovina, which are now in the Soviet Union. Does not include an estimated 40,000-45,000 survivors in Bessarabia and Bukovina. The pre-war Jewish population within present Rumanian boundaries was approximately 520,000. Included in the 1946 figure of 335,000 are 40,000 formerly residing in the two ceded provinces.

Includes the 1939 Jewish population of Estonia, Latvia, and Lithuania, estimated at about 250,000.

163. IMMIGRATION INTO PALESTINE

Statement by President Truman, October 4, 1946 1

I have learned with deep regret that the meetings of the Palestine Conference in London have been adjourned and are not to be resumed until December 16, 1946. In the light of this situation it is appropriate to examine the record of the administration's efforts in this field, efforts which have been supported in and not of Congress by members of both political parties, and to state my views on the situation as it now exists.

It will be recalled that, when Mr. Earl Harrison reported on September 29, 1945, concerning the condition of displaced persons in Europe, I immediately urged that steps be taken to relieve the situation of these persons to the extent at least of admitting 100,000 Jews into Palestine. In response to this suggestion the British Government invited the Government of the United States to cooperate in setting up a joint Anglo-American Committee of Inquiry, an invitation which this Government was happy to accept in the hope that its participation would help to alleviate the situation of the displaced Jews in Europe and would assist in finding a solution for the difficult and complex problem of Palestine itself. The urgency with which this Government regarded the matter is reflected in the fact that a 120-day limit was set for the completion of the Committee's task.

The unanimous report of the Anglo-American Committee of Inquiry was made on April 20, 1946, and I was gratified to note that among the recommendations contained in the Report was an endorsement of my previous suggestion that 100,000 Jews be admitted into Palestine. The administration immediately concerned itself with devising ways and means for transporting the 100,000 and caring for them upon their arrival. With this in mind, experts were sent to London in June 1946 to work out provisionally the actual travel arrangements. The British Government cooperated with this group but made it clear that in its view the Report must be considered as a whole and that the issue of the 100,000 could not be considered separately.

3

On June 11, I announced the establishment of a Cabinet Committee on Palestine and Related Problems, composed of the Secretaries of State, War, and Treasury, to assist me in considering the recommendations of the Anglo-American Committee of Inquiry. The alternates of this Cabinet Committee, headed by Ambassador Henry F. Grady, departed for London on July 10, 1946, to discuss with British Government representatives how the Report might best be implemented. The alternates submitted on July 24, 1946 a report, commonly referred to as the "Morrison plan", advocating a scheme of provincial autonomy which might lead ultimately to a bi-national state or to partition. However, opposition to this plan developed among members of the major political parties in the United States-both in the Congress and throughout the country. In accordance with the principle which I have consistently tried to follow, of having a

1 Department of State Bulletin of October 13, 1946, pp. 669-670.

2 For text of Mr. Harrison's report to the President, see Department of State Bulletin of September 30, 1945, p. 456; and for the statement of the President, see Department of State Bulletin of November 18, 1945, p. 790.

For text of the Executive order establishing the Committee, see Department of State Bulletin of June 23, 1946, p. 1089.

maximum degree of unity within the country and between the parties on major elements of American foreign policy, I could not give my support to this plan.

I have, nevertheless, maintained my deep interest in the matter and have repeatedly made known and have urged that steps be taken at the earliest possible moment to admit 100,000 Jewish refugees to Palestine.

In the meantime, this Government was informed of the efforts of the British Government to bring to London representatives of the Arabs and Jews, with a view to finding a solution to this distressing problem. I expressed the hope that as a result of these conversations a fair solution of the Palestine problem could be found.1 While all the parties invited had not found themselves able to attend, I had hoped that there was still a possibility that representatives of the Jewish Agency might take part. If so, the prospect for an agreed and constructive settlement would have been enhanced.

The British Government presented to the Conference the so-called "Morrison plan" for provincial autonomy and stated that the Conference was open to other proposals. Meanwhile, the Jewish Agency proposed a solution of the Palestine problem by means of the creation of a viable Jewish state in control of its own immigration and economic policies in an adequate area of Palestine instead of in the whole of Palestine. It proposed furthermore the immediate issuance of certificates for 100,000 Jewish immigrants. This proposal received wide-spread attention in the United States, both in the press and in public forums. From the discussion which has ensued it is my belief that a solution along these lines would command the support of public opinion in the United States. I cannot believe that the gap between the proposals which have been put forward is too great to be bridged by men of reason and good-will. To such a solution our Government could give its support.

In the light of the situation which has now developed I wish to state my views as succinctly as possible:

1. In view of the fact that winter will come on before the Conference can be resumed I believe and urge that substantial immigration into Palestine cannot await a solution to the Palestine problem and that it should begin at once. Preparations for this movement have already been made by this Government and it is ready to lend its immediate

assistance.

2. I state again, as I have on previous occasions, that the immigration laws of other countries, including the United States, should be liberalized with a view to the admission of displaced persons. I am prepared to make such a recommendation to the Congress and to continue as energetically as possible collaboration with other countries on the whole problem of displaced persons.

3. Furthermore, should a workable solution for Palestine be devised, I would be willing to recommend to the Congress a plan for economic assistance for the development of that country.

In the light of the terrible ordeal which the Jewish people of Europe endured during the recent war and the crisis now existing, I cannot believe that a program of immediate action along the lines suggested above could not be worked out with the cooperation of all people concerned. The administration will continue to do everything it can to this end.

1 Department of State Bulletin of August 25, 1946, p. 380.