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considerable gains in organization, in prestige, and in the number and diffusion of its adherents. The movement had become world- wide; it had been recognized by the British Government (in the abortive offer of a territory in E. Africa, 1903) as representing the Jewish people; and it had become a powerful- leaven in Jewish life, stimulating interest in Palestine and the revival of the Hebrew language in every Jewish community throughout the world. The Zionist organization, though it could not of itself bring about any serious political change in Palestine, was in a position to secure that, if and when the political future of Palestine became a practical question, the claims of Jewish nationalism should not go unheard.

Meanwhile it had to be content with the up-hill work of Palestinian colonization and the education of the Jewish people in the national idea. The number of Jewish agricultural settlements in Palestine grew from about 25 in 1904 to about 45 in 1914. The Hebrew school system developed rapidly, and the project of a Hebrew university in Jerusalem was definitely launched in 1913. The membership of the organization and the capital of the Jewish National Fund grew from year to year, and unorganized sympathy with the Zionist outlook and aims became more and more widely diffused.

The entry of Turkey into the World War called for a renewal of political activity on the part of the Zionist organization, as it obviously meant that the future of Palestine would before long come up for settlement. At the same time, the position of the organization was extraordinarily difficult. With adherents in all countries, both belligerent and neutral, it could not present a united front in international political questions, and the leaders of its various groups could not even take counsel together. The last biennial Zionist Congress had met in 1913; a Congress in 1915 was- obviously impossible. Emergency arrangements were made to secure the existence of the organization, but for practical purposes it had to remain in suspense throughout the unexpectedly long period of hostilities. Meanwhile, the need for obtaining express recognition of Zionist claims became more pressing as a result of the British advance into Palestine in 191.7. Relations with the principal Allied Governments had already been estab- lished, mainly by Dr. Ch. Weizmann and Mr. N. Sokolow, two of the Zionist leaders. As the outcome of protracted negotiations, in which Sir (then Mr.) Herbert Samuel played an important part, the British Government issued on Nov. 2 1917 the " Balfour Declaration," stating that they " view with favour the establish- ment in Palestine of a National Home for the Jewish people, and will use their best endeavours to facilitate the achievement of this object," and adding provisos to safeguard the rights of existing non-Jewish communities in Palestine and the rights and political status enjoyed by Jews elsewhere. The Allied troops entered Jerusalem soon afterwards (Dec. 9 1917), and in March of the following year the Balfour Declaration had its first practical outcome in the departure for Palestine of a Zionist Commission, which was to " act as an advisory body to the British authorities in all matters relating to Jews or which may affect the establishment of a national home for the Jewish people," and was charged with certain specific tasks in relation to the Jewish population of Palestine. The Commission remained in Palestine as the representative of the Zionist organization, and there directed such Zionist work as was possible during a period of unsettlement and restricted communications. In July 1918 it laid the foundations of the future Hebrew University on Mount Scopus.

The Turks were finally expelled from Palestine in Sept. 1918, and the Zionist policy of the British Government, which had in the meantime been endorsed by all the Allied Powers and by the President of the United States, had its logical outcome in the incorporation of the Balfour Declaration in the Treaty of Sevres and the acceptance by Great Britain of a Mandate for Palestine on behalf of the League of Nations (San Remo, April 1920). The draft Mandate as printed in a Parliamentary White Paper (Cmd. 1176), recites in its preamble the substance of the Balfour Declaration, whereby " recognition has been given to the historical connexion of the Jewish people with Palestine

and to the grounds for reconstituting their national home in that country," and provides inter alia that the Mandatory shall be responsible for placing the country under such political adminis- trative and economic conditions as will secure the establishment of the Jewish national home and the development of self-govern- ing institutions (Art. 2); shall recognize an appropriate Jewish agency (provisionally the Zionist organization,) as a public body for the purpose of advising and cooperating with the administra- tion of Palestine in matters affecting the establishment of the Jewish national home (Art. 4); shall appoint a special Com- mission to study and regulate all questions and claims relating to the different religious communities (Art. 14); shall see that complete freedom of conscience is assured to all (Art. 15); and shall recognize Hebrew along with English and Arabic as an official language (Art. 22).

The frontiers of Palestine were defined in a separate convention between Great Britain and France dated Dec. 23 1920, and published in a White Paper (Cmd. 1195). In 1916, before either Government had come into close contact with Zionism, an Agreement (known as the Sykes-Picot Agreement) was made, dividing Palestine into a British and a French sphere of influence. This agreement needed revision in the light of subsequent developments, with due regard to both Arab and Zionist interests as well as to those of the two Powers concerned. The Convention of T92O defines the frontiers of Palestine in such a way as to comply with the requirements of the historic phrase " from Dan to Beersheba," and to include in Palestine all the modern Jewish agricultural settlements, but not to give Palestine control of the sources of water power which are held to be necessary for its full economic development. On the other hand, the Agreement provides that Palestine is to have the use of the waters of the Upper Jordan and the Yarmuk and their tributaries, after satisfaction of the territories under the French mandate.

The draft Mandate for Palestine was attacked from three sides. Certain Palestinian Arabs, professing to speak in the name of the whole Arab population, objected absolutely to its Zionist provisions. A school of Zionists more or less in the line of the original Herzlian tradition complained that the draft Mandate gave too little to the Jewish people, and that the term " National Home " was too vague, and demanded that explicit provision should be made for the development of Palestine into a " Jewish State " within a fixed period. Lastly, some British politicians and newspapers attacked the Mandate on the grounds that it would involve the British taxpayer in expense with no cor- responding return, and that it was unjust to impose a Zionist policy on the Arabs of Palestine against their wishes.

Despite these criticisms, there was every sign up to the end of 192 r that the Government intended to proceed in full ac- cord with the spirit and the letter of the Balfour Declaration. Mr. Winston Churchill, the Secretary of State for the colonies, during his visit to Palestine in April 1921, emphatically declared that the Zionist policy of the Government remained unchanged, while assuring the Arabs with equal emphasis that their rights would be fully respected. The First High Commissioner, Sir Herbert Samuel, had won the confidence of all sections of the population by his impartiality.

AUTHORITIES. Moses Hess, Rom und Jerusalem, 1862 (English translation by Meyer Waxman, 1918) ; Leo Pinsker, Auto-Emancipa- tion, 1882 (English translation by D. S. Blondheim, 1918); Theodor Herzl, Zionistische Schriften (English translation of Der Judenstaat and of his Congress Addresses published by the Federation of Ameri- can Zionists, 1917); Achad ha-Am, Selected Essays, translated by Leon Simon (1912) ; Richard Gottheil, Zionism (1914) ; Adolf Friede- mann, Das Leben Theodor Herds (1914) ; Kurt Nawratzki, Die Judische {Colonisation Palastinas (1914); Zionism and the Jewish Future, edited by H. Sach'er (2nd ed. 1917: with bibliography); A. M. Hyamson, Palestine: The Rebirth of an Ancient People (1917); H. Sidebotham, England and Palestine (1918); Nahum Sokolow, History of Zionism, 1600-1918 (2 vols. 1919: with bibliography); Norman Bentwich, Palestine of the Jews (1919); Shmarya Levin, Out of Bondage (1919); Leon Simon, Studies in Jewish Nationalism (1920) ; Zionism (Foreign Office Handbook, No. 162, 1920). There is also a voluminous periodical and pamphlet literature. Zionism and the Future of Palestine by Morris Jastrow, Jr. (1919) puts the " assimilationist " case against Zionism. (L. Si.).