United Nations Information

1919: The King-Crane Commission Report

by Henry C. King and Charles R. Crane — August 28, 1919.

Posted: Thursday, February 05, 2004 at 06:51 AM CT

The King-Crane Commission Report, August 28, 1919

Report of [the] American section of Inter-allied Commission of mandates in Turkey. An official United States government report by the Inter-allied Commission on Mandates in Turkey. American Section

Report of American Section of Inter-Allied Commission on Mandates in Turkey

An Official United States Government Report

"Dr. Henry Churchill King was born at Hillsdale, Mich., in 1858. He is president of Oberlin College and one of America's best known educators as well as the author of numerous volumes on theology, education and philosophy. During 1918-1919 he was director of religious work for the YMCA in France. In September, 1919, he was appointed to serve on the American Section of the Peace Conference Inter-Allied Commission on Mandates in Turkey."

I. THE REPORT UPON SYRIA

The American Commissioners of the projected International Commission on Mandates in Turkey, herewith submit their final report upon the Syrian portion of their task.

The Commission's conception of its mission was defined in the following statement, which was given to the press wherever the Commission went:

"The American Section of the International Commission on Mandates in Turkey, in order that their mission may be clearly understood are furnishing to the press the following statement, which is intended to define as accurately as possible the nature of their task, as given to them by President Wilson.

"The American people-having no political ambitions in Europe or the Near East; preferring, if that were possible, to keep clear of all European, Asian, or African entanglements but nevertheless sincerely desiring that the most permanent peace and the largest results for humanity shall come out of this war- recognize that they cannot altogether avoid responsibility for just settlements among the nations following the war, and under the League of Nations. In that spirit they approach the problems of the Near East.

"An International Commission was projected by the Council of Four of the Peace Conference to study conditions in the Turkish Empire with reference to possible mandates. The American Section of that Commission is in the Near East simply and solely to get as accurate and definite information as possible concerning the conditions, the relations, and the desires of all the peoples and classes concerned in order that President Wilson and the American people may act with full knowledge of the facts in any policy they may be called upon hereafter to adopt concerning the problems of the Near East-whether in the Peace Conference or in the later League of Nations.

"This statement of the mission of the Commission is in complete harmony with the following paragraph from the Covenant of the League of Nations, particularly referring to portions of the former Turkish Empire:

"'Certain communities formerly belonging to the Turkish Empire have reached a stage of development where their existence as independent nations can be provisionally recognized subject to the rendering of administrative advice and assistance by a Mandatory until such time as they are able to stand alone. The wishes of these communities must be a principal consideration in the selection of the Mandatory.' "

The Commission had in its survey of Syria the assistance of Dr. Albert H. Lybyer, Dr. George R. Montgomery, and Capt. William Yale, U. S. A., as advisors; of Capt. Donald M. Brodie, U. S. A., as secretary and treasurer; of Dr. Sami Haddad, instructor in the School of Medicine of the Syrian Protestant College of Beirut, as physician and interpreter; of Mr. Laurence S. Moore as business manager; and of Sergt.-Major Paul O. Toren as stenographer. The advisors had all been previously connected as experts with the Peace Conference in Paris, and had been students of the special problems of the Near East.

The report naturally falls into three divisions: Data, General, Considerations, and Recommendations .

The Commission had already familiarized itself before leaving Paris with the full and varied reports and material coming into the office of the Western Asia Division of the experts of the American Section of the Peace Conference, and with considerable other literature bearing on the Near East. The survey of Syria was made in the light of all this previous study.

The method of the Commission, in its inquiry in Syria, was to meet in conference individuals and delegations who should represent all the significant groups in the various communities, and so to obtain as far as possible the opinions and desires of the whole people. The process Itself was inevitably a kind of political education for the people, and, besides actually bringing out the desires of the people, had at least further value in the simple consciousness that their wishes were being sought. We were not blind to the fact that there was considerable propaganda; that often much pressure was put upon individuals and groups that sometimes delegations were prevented Tom reaching the Commission, and that the representative authority of many petitions was questionable. But the Commission believes that these anomalous elements in the petitions tend to cancel one another when the whole country is taken into account, and that, as in the composite photograph, certain great, common emphases are unmistakable.

The Commissioners were struck, on the other hand, with the large degree of frankness with which opinions were expressed to them, even where there was evident fear of consequences. In this respect the American Section had an evident advantage, which could not have held for a mixed Commission. Moreover, the nearly universal recognition of the fact that America sought no additional territory was favorable to a frank expressed of opinion.

The direct data, furnished by the inquiry in Syria, are given in a series of tables, prepared by the Secretary of the Commission, and based immediately upon the Conferences of the Commission and the petitions there presented.

The area and towns covered by the Commission's inquiry are shown in the following itinerary for June 10 to July 21, 1919, and in the table of the towns, classified according to the different divisions of the Occupied Enemy Territory Administrations-British, French, and Arab These tables show that the Commission visited 36 of the more important towns of Syria, scattered through all the military areas, and heard delegations from other important centers. It should be noted that the list does not include at all the names of hosts of villages in the vicinity of towns visited, which were also represented by delegations before the Commission. Our records show that there were 1,520 such villages. Cilicia was briefly included in the Syrian inquiry, because it is disputed territory claimed both by Syria and by the Turkish-speaking portion of the former Turkish Empire

THE ITINERARY

CITIES AND VlLLAGES OF SYRIA AT WHICH DELEGATIONS WERE RECEIVED BY THE AMERICAN COMMISSION

I-O. E. T. A. (South)-Under British Military Administration-Comprises Palestine west of Jordan line.

Acre.
Beersheba-(Gaza).*
Bethlehem
Haifa
Hebron
Jaffa (Ludd, Ramleh)
Tenin.
Jerusalem
Nablus
Nazareth (Safed, Tiberias).
Ramallah.
Richon-le-Sion.
Tel-a-Viv.

II-O. E. T. A. (East)-Under Arab Military Administration-Comprises all of Syria east of Jordan line and Lebanon boundary

Aleppo.
Amman (Es-Salt)
Baalbek
Damascus.
Deraa.
Hama.
Homs.
Moalaka

III-O. E. T. A. (West)-Under French Military Administration-Comprises Lebanon and Coastal Regions north to Alexandretta.

Ainab.
Alexandretta (Antioch).
Baabda.
Betrun.
Beirut.
Bkerke.
Tebeil
Ladikiya.
Sidon.
Tripoli.
Tyre.
Zahle.

IV-O. E. T. A. (North)-Under French Military Administration-Comprises Cilicia.

Adana.
Mersina.
Tarsus.

*Delegations were received from cities and villages name in parenthesis.

The Secretary's Summarized Statement l of Significant conclusions brought out in the Tables of Petitions, gives added information and discussion, greatly needed for a proper interpretation of the petitions and of our entire survey; and is therefore made the concluding section of the Secretary's presentation of data.

POPULATION ESTIMATES

An estimate of the population of the different districts is added at this point, for a better understanding of the tables and discussion which follow. The figures in all cases must be regarded as only approximate, but may be taken as giving a fairly accurate view of the proportions of the population.

CLASSIFIED LIST OF DELEGATIONS RECEIVED
 

The tables showing the classes and number of delegations met by the Commission, should make clear how varied the population is, and also that no vital interest or element of the population has been omitted in the inquiry. At the same time it should be carefully borne in mind that the number of delegations is no proper index of the proportions of the population. The Christian population is divided into so many small groups that it is represented in the tables by a larger number of delegations than the Moslem majority.

O. E. T. A

*The simple statement that the women of the East left their historic seclusion to appear before a Commission of American men is a revelation of the new role women are playing in the nationalistic movements in the Orient.

PETITION SUMMARIES-SYRIA COMPLETE

The tables of summaries of petitions made to the Commission, written or oral or both, reveal the range of the discussions in the conferences, and the chief positions taken by the people. They are given by Military Districts, as well as for Syria as a whole, because the petitions vary considerably with the Districts.

Total Number of Petitions Received: 1863.

***The reason for opposition to Article XXII is set forth by the secretary later in the report.
 

SUMMARY OF SIGNIFICANT CONCLUSIONS.

I. The Value of the Petitions as an Estimate of Public Opinion in Syria:

The 1863 petitions received by the American Commission in Syria and the summary tables prepared from them cannot of course be regarded as a mathematically accurate analysis of the real desires of the peoples of Syria. There are at least five unavoidable difficulties that have qualified their accuracy.

1. The number of the petitions from the different sections of Syria is not proportional to their respective populations, e. g., O. E T. A. [Note: These initials stand for "Occupied Enemy Territory Administration," but are commonly used as a word, "Oeta," as "British Oeta," "French Oeta," or "Arab Oeta."] South, with thirteen cities at which delegations were received is represented by only 260 petitions, while 1,157 petitions were received from O. E T. A. East, in which but eight cities were visited. As the Commission progressed northward the petitions became more numerous, due to the increased time afforded for knowledge of the Commission's coming, for the preparation of petitions, for the activities of propaganda agents, and for the natural crystallization of public opinion.

2. The number of petitions from the different religious organizations is not proportional to the numerical strength of the religious faiths. This Is especially true of the verbal requests made by delegations. In O. E. T. A. South, for instance, on account of the number of sects of the Christian faith, 53 delegations of Christians were received, and only eighteen delegations of Moslems, whereas the Moslem population is fully eight times as large as that of the Christian. This disparity does not, however, hold for the total number of petitions, verbal and written, as it was corrected in part by the large number of petitions from Moslem villages presented to the Commission at Aleppo and other northeastern points.

3. A number of petitions show clearly the influence of organized propaganda. This is sometimes evidenced in the petitions themselves by numerous similarities of phrasing, by many identical wordings, and by a few instances in which printed forms, obviously intended as models for written documents, have been signed and given to the Commission.

In addition to the internal evidence, there were also many external indications of systematic efforts to influence the character of the petitions. The same Arab agent was observed in four cities of Palestine, assisting in the preparation of petitions. Similar activities on the part of French sympathizers were observed In Beirut.

4. In addition to this general propaganda, which was entirely legitimate as well as natural and inevitable, it is certain that a small number of petitions were fraudulently secured. In two cases the signatures were in the same handwriting. Three instances of "repeater" signatures were discovered. In addition, the seals of new organizations, purporting to be Trade Unions of Beirut, were discovered to have been ordered by the same propaganda agent a few days before the arrival of the Commission. All possible precautions were taken to insure authenticity of petitions and signatures, but in view of the character of the Commission's survey and the limited facilities for close checking, the genuineness of all cannot be guaranteed.

5 The value of the individual petitions varies also with the number of signatures, although mere numbers cannot be taken as the only criterion. For example, some petitions signed by only a small Municipal Council may represent a larger public opinion than a petition signed by a thousand villagers. The number of signatures is 91,079;* 26,324 for the Petitions of O. E. T. A. South, 26,884 for the Petitions of O. E. T. A West, and 37,871 for the Petitions of O. E. T. A. East. This represents a general average of 49 signatures for each petition. The number of signatures varies widely from this average, but the totals for the different programs are fairly well equalized.

Yet despite these five qualifications, it is believed that the petitions as summarized present a fairly accurate analysis of present political opinion in Syria. The great majority of irregularities offset one another. The preponderance of Christian petitions in Palestine is balanced by the flood of Moslem appeals at Aleppo. The activities of French sympathizers in Tripoli probably did not influence the character of the petitions presented much more than the contrary efforts of the Independent Program representatives in Amman.

The petitions are certainly representative. As the classified list of delegations received by the Commission clearly indicates, the petitions came front a wide range of political, economic, social, and religious classes and organizations. It was generally known throughout Syria that the American Commission would receive in confidence any documents that any individual or group should care to present. In the few cities in which the military authorities sought to exert control, directly or indirectly, over the delegations, without exception the opposition parties found opportunities to present their ideas to the Commission, if not always orally, at least in writing.

*NOTE: These figures indicate the magnitude of the popular interest in the Commission's work and the vast amount of material it had to handle. The reader should again be reminded that "O. E. T. A. South" was British, or Palestine, "O. E. T. A. West" was French, or Syrian; "O. E. T. A. East" was Arab, and "O. E. T. A. North" was French.

II. Definite Programs Revealed in the Petitions:

Before considering the special requests contained in the petitions, it is advisable to present the six distinct political programs that were clearly revealed in the petitions, and that in some instances were developed during the investigation of the Commission. Of the 1,863 petitions for Syria, 1,364 are exact copies of some of these programs and many others have close resemblances. They are:

l. The Independence Program. The first petitions received by the Commission, those at Jaffa on June 11, except in the case of the Zionist statements, do not give evidence of any agreed and elaborated policy for the future of Syria. The petitions varied greatly in content and wording. There were, however, four of the twenty petitions at Jaffa that contained what may be termed an Independence Program with three "planks" in its platform:

(a) The Political Unity of Syria, including Cilicia on the north, the Syrian Desert on the east, and Palestine, extending as far as Rafa on the south

(b) Absolute Independence for Syria;

(c) Opposition to a Zionist State and Jewish Immigration.

This program became the dominant note in the petitions presented in O. E. T. A. South. At Jerusalem eight of the twenty-three petitions received contained the Independence Program with practically identical wording. At Haifa and Nazareth, two of the last cities visited in the district, it constituted 35 and 10 respectively of the 60 and 18 petitions presented. Of the 260 petitions from O. E. T. A. South, 83, or 32 per cent, were simply the Independence Program, while many others closely resembled it. One printed form of this program was received by the Commission as a petition at Jenin, June 22, and doubtless other printed copies had been models for many of the petitions received in the last cities visited.

2. The "Damascus" Program: The original Independence Program was expanded on July 2 by the General Syrian Congress' meeting at Damascus into what came to be known as the Damascus Program. This program contained the three points of the Independence Program modified by asking "assistance" for the Syrian State from America, or, as second choice, from Great Britain, and expanded by adding:

(a) A rejection of Art. 22 of the League Covenant;

(b) A rejection of all French claims to Syria

(c) A protest against secret treaties and private agreements (by inference the Sykes-Picot Agreement and the Balfour Declaration);

(d) Opposition to independence for Greater Lebanon;

(e) Request for a democratic, non-centralized government under Emir Feisal; and

(f) A request for the independence and economic freedom of Mesopotamia.

Three petitions with the Damascus program in full had been received by the Commission prior to its adoption by the Syrian Congress. After that date 1,047 of the 1,473 petitions received during that period contained this program. Of that number 964 were on printed blanks, of which there were seven distinct "forms" with the program printed in full.

3. The Lebanon Programs: There are three distinct types of Lebanese programs that appear in the petitions:

(a) The French Independent Greater Lebanon. This program asks for complete independence and separation from Syria for the Greater Lebanon, including the Valley of Bekaa and in some instances Tripoli. France is asked for as the mandatory Power. 139 of the 146 petitions received in O. E. T. A. West contain this program, with practically identical wording. Of these twenty are on three varieties of printed forms.

(b) The Independent Lebanon Program. Another distinct program asks for the same points with the exception of a French Mandate. 33 of the 36 petitions with the wording of this program are on two varieties of printed forms. In eight instances requests for a mandate are added in writing.

(c) The Autonomous Lebanon Program. This program asks for a greater Lebanon as an autonomous province within a United Syrian State. No mandate is mentioned. 49 petitions are copies of this program, three of them on a printed form.

4. The Zionist Program: Eleven petitions with varying wording favor the Zionist Program of a Jewish State and extensive Jewish immigration. These are all from Jewish delegations. Eight other petitions express approval of the Zionist colonies in Palestine without endorsement of the complete program. :Four of these latter are statements by Arab peasants that they are on good terms with the Jewish colonies.

F-Protests and Criticisms

Another distinct classification is that of protests and criticisms. Criticisms against nations have been divided into: (a) General statements criticising national claims, character or policies, without making specific references, b) specific criticisms, usually of alleged mismanagement or corruption in the local military administration (c) protests against the interference of the local military authorities with free access to the American commission.

1. Three general anti-British statements were presented.

2. The general anti-French statements were much more numerous, 1,129 (60.5 per cent) due largely to the fact that such a protest is included in the Damascus program. There were also 24 specific criticisms of French administration in O. E. T. A. West, and 11 protests against deportation, armed guards, threats, and intimidation said to have been used by the French administrative authorities in O. E. T. A, West, to prevent individuals with anti-French views from appearing before the commission.

3. General criticism of the Arab government appeared in 35 petitions, always from Christian sources, and expressing fear as to the fate of the Christians under an independent Arab rule. In addition the administration of O. E. T. A. East is criticized in four petitions.

4. The Damascus program protest against applying Article 22 of the Covenant of the League of Nations to Syria is included in 1,033 (55.3 per cent) petitions. This article states that "certain communities formerly belonging to the Turkish Empire have reached a state of development where their existence as independent nations can be provisionally recognized, subject to the rendering of administrative advice and assistance by a mandatary, until such time as they are able to stand alone." This protest is in line with the Damascus program plea for complete independence and the fear already referred to that a mandate might impair the full freedom of Syria. It is interesting to note that this protest did not appear until after the 22nd Article had been published in a statement given by the Commissioners to all the newspapers in Damascus.

5. One more protest is a part of 988 (52 per cent) petitions, a protest against secret treaties, treaties dividing Syria without the consent of the Syrians, and private agreements. The Sykes-Picot agreement and the Balfour declaration are not mentioned, but it is usually understood that they are referred to. This protest is included in the Damascus program and also received support from other elements

These statements-chiefly tabular- prepared by the secretary, of the results of the inquiry into Syrian opinion, need to be supplemented by a historical account prepared by the General Adviser Dr. Lybyer. This account will help to put concretely the entire situation, and to give the atmosphere of our inquiry, and so complete the basic data as presented in the field.

THE STORY OF THE TOUR

The whole area visited by the commission during the 42 days from June 10 to July 21 is Occupied Enemy Territory under the supreme authority of General Allenby. The administration is conducted under the Turkish laws, with small local modifications, in many cases continuing in office part or all of the officials left behind by the Turks. A system of military governors and officers assigned to special duties, such as financial and medical advice, liaison work, etc., parallels the civil administration. The whole area is in four portions, known respectively as O. E. T. A. (Occupied Enemy Territory Administration) South, West, East and North, and administered under the guidance respectively of English, French, Arab, and French officers. The order of description followed below is by these areas, and is nearly coincident with the itinerary of the commission, the only exception being that much of O. E. T. A. East was visited before O. E. T. A West. Fifteen days were spent in the South, ten in the West fifteen in the East, and two in the North.

THE GEOGRAPHY OF THE CLAIMS

III-Specific Requests as Given in the Tables:

A-Territorial Limits:

1. The largest percentage for any one request is that of 1,500 petitions (80.4 per cent) for United Syria, including Cilicia, the Syrian Desert, and Palestine. The boundaries of this area are usually defined as "The Taurus Mountains on the north- the Euphrates and Khabur Rivers, and the line extending east of Abu Kamal to the east of Al Juf on the east; Rafa and the line running from Al Juf to the south of Akaba on the south, and the Mediterranean Sea on the West." In addition to being the first plank of the Damascus program, a United Syria received strong support from many Christians in all the O. E. T. As., as the number of petitions indicates.

2. In opposition to Syrian Unity, six of the nineteen pro-zionist petitions ask for a separate Palestine, and presumably it is implied in the others.

3. In addition, two Christian groups in Palestine asked for a separate Palestine under the British, in preference to a United Syria under the French.

4. Twenty-four petitions, chiefly from Christian sources in O. E. T. A. South, asked for an autonomous Palestine within the Syrian State. For many other delegations this was doubtless implied in the general request for independence and a non-centralized government.

5. In opposition also to a United Syria are the 203 petitions (16.9 per cent) asking for an independent Greater Lebanon. One hundred and ninety-six of these came from Lebanon and 139 are copies of the French-Lebanon program.

6. The request for a United Syria is made even more emphatic by the 1,062 protests against an Independent Greater Lebanon. These include the Damascus program petitions and some from Protestant and other Christian sources in Lebanon.

7. Thirty-three Lebanese delegations representing both Moslems and Christians, fearing the economic future of a separate Lebanon, asked for autonomy within a Syrian State. Others also regarded autonomy as implied in the request for independence and a non-centralized government.

8-9. The Valley of Bekaa is usually regarded as an integral part of Greater Lebanon. Eleven petitions, however make especial reference to its inclusion, while eight ask that the Valley remain in the Damascus area.

10-ll. Similarly, while Cilicia is definitely included in the demand for a United Syria made by 1,500 petitions, two petitions asked specifically for it, while three requested that it be given to the Armenian State.

B-Independence:

1. The second largest percentage of all, 1,370 (73.5 percent), is for "Absolute Independence," the second cardinal point of the Damascus program, supported generally by all Moslem delegations. It is certain from the oral statements that accompanied the petitions that the term "Absolute Independence" was seldom used in the sense of an entire freedom from any foreign guidance, such as that of a mandatory under the League of Nations, inasmuch as the request was frequently combined with a choice of mandate, and in all but a few cases with either a choice of mandate or a request for foreign "assistance." While a few of the Young Arab clubs certainly desired freedom from all foreign control, the great majority asked for independence and defined a mandate to mean only economic and technical assistance, because of a widespread fear that the mandatory arrangement would be used to cloak colonial annexation.

2-3. Only a slightly smaller number, 1,278 (68.5 per cent), asked for the independence of Iraq, or Mesopotamia. To these should be added 93 of the 97 petitions for the independence of all Arab countries as in only four petitions do both requests appear, and the second includes the first. The phrasing "for all Arab countries" was first used in Palestine, and dropped for the special mention of Iraq in the Damascus program. A total of 1,371 petitions, therefore, asked for the independence and economic freedom of the Iraq regions.

C-Form of Government;

1-2. The establishment of a "democratic, non-centralized, constitutional" kingdom is one of the points of the Damascus program, as the number of petitions for it 1,107 (59.3 per cent), indicate. All but five of these petitions, also, ask that Emir Feisal be made the king. These petitions were especially numerous in O. E. T. A. East, where 1,005 of 1,157 request both a kingdom and the Emir as king. This part of the program had apparently not been developed when the commission was in Palestine, as only five of 260 O. E. T. A. South petitions referred to a kingdom, and only two mentioned Emir Feisal.

3. A request for a democratic representative government, presumably of a republican character, came to the commission from 26 Christian groups in O. E. T. A. West, and eight groups in O. E. T. A. East, a total of 34 (1.8 per cent) . This request was usually made in opposition to the Moslem idea of a Syrian kingdom under Feisal.

4. The request for proper safe-guarding of the rights of minorities included in the Damascus program was also made by many of the Christian groups in the Lebanon. The total is 1,023 (54.9 per cent)~ This request received a more united support from both Moslems and Christians than any other, except anti-Zionism.

5-6. Five requests for the retention of Arabic as the official language (rather than Hebrew) and ten requests for the abolition of foreign capitulations (officially annulled by the Turks, but without sanction of the Powers), came from scattered points in O. E. T. A. South.

7. Nineteen (1.02 per cent) petitions were received for the autonomy of all the provinces of Syria. This is in addition to the separate requests for autonomy of Lebanon and Palestine. Once more it should be said that many regarded a large measure of local autonomy as implicit in the general idea of a democratic. non-centralized government, but these nineteen groups made special reference to it.

D-Choice of Mandate:

With regard to choice of mandate, five classes of requests had to be distinguished, as shown in the tables. In addition to definite requests for a given nation as the mandatory power, a few groups gave their preference, "if a mandatory is obligatory," i. e., rather under protest, while the great majority asked for "assistance" rather than a mandatory, because of a misunderstanding, and the fear referred to above that a "mandate" is a convenient cloak for colonial aggression. Petitions of these three classes have therefore been grouped in the summary as "Total first choice." In addition preferences for second choice of mandate and "assistance" have been tabulated.

1. The total of the petitions asking for Great Britain as first choice is 66 (3.5 per cent). Forty-eight came from Palestine; 13 are from Greek Orthodox delegations, and four from the Druses. The second choice total is 1,073 (57.5 per cent), due to the 1032 requests for British "assistance" if America declined, in accordance with the Damascus program.

2. The French total for first choice is 274 (14.68 per cent), all but 59 of them from the Lebanon district. The second choice total is three.

3. The 1,064 requests for American "assistance " according to the Damascus program, with 57 selections of America as mandatory power, and eight more if a mandate is obligatory, make up the first choice total of 1,129 (60,5 per cent). The second choice total is 11.

4. Twenty-three petitions received at Jenin, Haifa, and Nazareth just before the Damascus program was adopted, left the choice of mandate to the Syrian Congress. This means, therefore, an additional 23 for American first choice and British second choice total.

E-Zionism

1-2-3. The petitions favoring the Zionist program have been analyzed above in the discussion of programs. In opposition to these are the 1,350 (72.3 per cent) petitions protesting against Zionist claims and purposes. This is the third largest number for any one point and represents a more widespread general opinion among both Moslems and Christians than any other. The anti-Zionist note was especially strong in Palestine, where 222 (85.3 per cent) of the 260 petitions declared against the Zionist program. This is the largest percentage in the district for any one point.

I-THE AREA UNDER BRITISH OCCUPATION
(O. E. T. A. SOUTH)

1. Narrative.-Owing to changes of plan at a late date, the commission arrived in Jaffa at a time when the British authorities were not expecting it, and the program followed there was arranged mainly without their help. The endeavor was made to ascertain the opinions and desires of every important group, sect, and organization, of a few well-informed representative individuals, and of significant minorities or sub-divisions, especially in cases where there seemed to be disposition, for any reason, to suppress these. Because of the numerous sub-divisions of the Christians and particularly of the Roman Catholics, it was inevitable that from the beginning the commission would give a disproportionate number of interviews and amount of time to them. The commissioners had prepared a statement of their purposes, to be found elsewhere in this report, which was read to important groups, and given to the press in lieu of interviews. Care was taken to make it clear, in response to frequent questioning, that the policy of the United States in regard to accepting a mandate anywhere was unformed and unpredictable, and that the commission had no power of decision. Automobiles were secured from the American Committee for Relief in the Near East, in order to be as little as possible dependent upon others than Americans. Word was given out that the commission would not accept general social invitations or consent to demonstrations.

On leaving Jaffa the commission stopped at two Jewish schools and took luncheon at the Hichon-le-Sion colony, where it met the chief men of several Jewish colonies, as well as the members of the central Zionist Commission.

A week was spent in Jerusalem, with two days out for visiting Bethlehem, Hebron, and Beersheba. A limited amount of hospitality was accepted in a quiet way from the British and French officials. In order that none might be offended the heads of the various religious groups were received, although some of them, as for instance the Copts and Abyssinians had little to say along the line of the inquiry

After leaving Jerusalem, a rapid journey was made through northern Palestine, delegations being received at Ramallah, Nablus, Jenin, Nazareth, Haifa and Acre. At most of these places groups came in, not only front the surrounding country, but from other administrative centers which it was impossible to visit.

2. THE ATTITUDE OF THE OCCUPYING GOVERNMENT.-The British officials, from Major General Sir Arthur Money, who was in command of O. E. T. A. South, down to the youngest officer, were courteous, obliging, and helpful. Most of them had had Indian, Egyptian, or Soudanese experience before the Great War. As a body they gave an impression of ability, efficiency, and a serious effort to administer the country for the good of the people.

It should be noted here that General Allenby detailed to accompany the commission as aid Lt. Col. J. K. Watson, who had served for years in a similar capacity with Lord Kitchener and later with the Khedive of Egypt. His thoughtfulness, kindness, and efficiency though the circumstances of travel were often trying, were unfailing, and the comfort, good health, and success in the investigation of the Commission were largely furthered by him.

3. Wishes of the People.-The Moslems constitute about four-fifths of the actual population of Palestine, according to a recent British census. Except for certain official groups they were practically unanimous for the independence of United Syria, and were responsive to the current political influences. The organizations met at Jaffa took the position that Syria is capable of self-government without a mandatory power, but if one should be insisted upon by the Peace Conference, they preferred the United States.

At Jerusalem, however, and in all other places in Palestine, the program of independence was affirmed. For the most part, the question of a mandate was referred, either in writing, or more often in response to questions, to the approaching Syrian Congress at Damascus, at which they would have representation. Some Moslems, especially in the South, maintained emphatically that they could accept no mandate whatever. It is evident that since the Damascus Congress later declared for American assistance, with the British as second choice, and emphatic refusal of the French,: this is the program to which the great majority of the Moslems of Palestine are committed. Probably most of them had it in mind when they declared for reference to Damascus.

The Christians of Palestine, who altogether constitute less than ten per cent of the population, showed more difference of opinion. Some groups in the north, as the Latin Catholics of Tiberias and Haifa and most of the Christians of Nazareth, were with the Moslems for independence and the reference to Damascus. Maronites and Greek Catholics, and usually the Latin Catholics, were for a French mandate. The Greek Orthodox everywhere, according to an agreed program, were for a British mandate, as were several scattering groups. None asked directly for the United States, though the opinion was expressed that if there were assurance that we would come if asked, most Christians would favor this solution. The Christians were in general strongly in favor of a mandatory power, which should exercise a real control. The Jews, who constitute a little more than ten per cent of the population, were all for Zionism, under a British mandate. The Moslem and Christian population was practically unanimous against Zionism, usually expressing themselves with great emphasis. This question was closely connected with that of the unity of all Syria under one Government.

4. Zionism.-The Jews of Palestine declared themselves unanimously in favor of the Zionistic scheme in general, though they showed difference of opinion in regard to the details and the process of its realization. The elements of agreement may be stated as follows:

(a) Palestine, with a fairly large area, to be set aside at once as a "national home" for the Jews.

(b) Sooner or later the political rule of the land will become organized as a "Jewish Commonwealth,"

(c) At the start authorization will be given for the free immigration of Jews from any part of the world; for the unrestricted purchase of land by the Jews, and for the recognition of Hebrew as an official language.

(d) Great Britain will be the mandatory power over Palestine, protecting the Jews and furthering the realization of the scheme.

(e) The Great Powers of the world have declared in favor of the scheme, which merely awaits execution.

Differences exist especially along two lines:

(a) Whether the Jewish Commonwealth should be set up soon or after a considerable lapse of time.

(b) Whether the chief emphasis should be upon a restoration of the ancient mode of life, ritual, exclusiveness and particularism of the Jews, or upon economic development in a thoroughly modern fashion, with afforestation, electrification of water-power, and general full utilization of resources.

5. The Custody of the Holy Places.-For four centuries the Turk has served as guardian of the peace between Moslems, Christians and Jews, and even between the different sects of each, in the Holy Land. Nor has his function been merely nominal: being really a foreigner and having upon himself the responsibility of government, he has on the whole well maintained the status quo, or policed slow and delicate changes in one direction or another. Now that his authority is gone, a substitute must be provided, whatever be the new regime. This might be the mandatory power. If, however, any Roman Catholic power should receive the mandate, trouble would arise from the fact than at present the Catholics feel unfairly treated and claim increase of privilege at the expense of the Greek Orthodox. A Catholic power would be tempted promptly to disturb the equilibrium, especially during the eclipse of the power of Russia.

There is already a "Custodian of the Holy Places" for the Roman Catholics. Might not this idea be extended to the constitution of a permanent Commission for the Holy Places, on which might be placed this man, and representatives of Greek Orthodox Christianity, Protestant Christianity, Sunnite Islam, Shiite Islam, and Judaism? The Commission might be given authority and means to guard and care for all the places in Palestine that are sacred to the three religions, and to adjudicate all disputes about their custody. Its composition should ensure conservatism and promote harmony.

II-THE AREA UNDER FRENCH OCCUPATION

1. The Commission reached Beirut after having visited Palestine and the southern half of the territory occupied by the Arab forces. Two days were spent in interviews in the city, and visits were paid by automobile to points from Tyre to Batrun. General Allenby was kind enough to place his yacht the "Maid of Honor" at the disposal of the Commission, and thus Tripoli, Alexandretta and Ladikiya were seen. Delegations were thus heard from every part of O. E. T A. West. Arrangements as to program, demonstrations, and the like, were in general maintained as in other areas. The French officials were at great pains to arrange suitably for the hearings of the Commission, and to provide for its comfort and well-being.

The women of the Moslem Trades School at Beirut had woven a rug for presentation to the Peace Conference, which is interesting as being a map, patterned so as to show the area claimed by Syrian Nationalists for United Syria.

2. Wishes of the People.-In general the situation was in accordance with that in Palestine and the Damascus area. With few exceptions the Moslems were for American or British assistance according to the "Damascus Program"; the Druses were for an English Mandate, the Maronites and all varieties of Catholics were for France. But the Greek Orthodox were divided, instead of standing for a British Mandate as usually in Palestine and Damascus. The Ismailians were mostly for France, and the Nusairiyeh were divided.

Those who stood for a French Mandate were of different opinions as regards the place and relationship of Lebanon in Syria. From Tyre to Tripoli they mostly followed a rigid formula which calls for a Greater Lebanon, absolutely independent of the rest of Syria, and under France; the supporters of this view showed no response to the idea of Syrian national unity, and apparently wish to become French citizens at an early moment.

Others desire the unity of Syria under the French Mandate, preferring ordinarily that the Lebanon District should be enlarged and given a high degree of autonomy.

In the Lebanon proper the majority is probably sincerely for a French, as opposed to a British mandate. The Commission could not inquire whether those who declared for France were well disposed toward an American Mandate, in case this were possible and a French Mandate for any reason undesirable; but there were a number of emphatic assurances that the great majority of the population, including even the Maronites, prefers America to any other; this is said to be based upon America's unselfish part in the war, her generosity before and after the armistice, and the personal relationships established by the large number of Lebanese who have gone to live for shorter or longer periods in the United States and to return home loyal.

The Druses ask emphatically to be left out of the Lebanon in case it be given to France,

But outside the Lebanon proper, in the areas which it is proposed to include in the "Greater Lebanon," such as Tyre, Sidon, "Hollow Syria," and Tripoli, a distinct majority of the people is probably averse to French rule. This includes practically all the Sunnite Moslems, most of the Shiites, a part of the Greek Orthodox Christians, and the small group of Protestants. Most of these ask earnestly for America, with Britain as second choice; the balance for Britain with America as second choice.

In the rest of the O.E.T.A. West, north of the proposed Greater Lebanon, the majority is probably against a French Mandate in any circumstances. A considerable proportion of the remainder are averse to a separation from the interior of the country, and place the unity of Syria above their preference for France.

It is worthy of note that whereas the Syrian nationalists everywhere distinctly and by name rejected the assistance of France, no one who supported France declared for a specific rejection of England or America. In a number of instances, however, the fear was expressed by Christians that England, if made the mandatory power, would show more favor to Moslems than to Christians.

3. The Lebanon.---The mountainous area set off in 1861 to be under the nominal protection of six European powers, with a Christian governor, has been a particular interest of France ever since. The population is largely Maronite and Roman Catholic. As in the case of all regions that have been removed from the direct jurisdiction of the Porte, progress has been comparatively rapid; roads have been built, trees planted, and a large number of stone houses erected. Money earned in America has helped greatly in these improvements. The Maronite ecclesiastical and monastic organizations have increased greatly in wealth in these years

The Lebanon has been freed from the burden of military service, and taxes have consequently been light. The area has been predominantly Christian and the Christians have enjoyed rather more than their proportion of the offices. Druses on the other hand have shown a tendency to emigrate to join their brethren in the Hauran, and they resent the inequalities of treatment to which they have been subjected.

The French policy of "colonization" shows its fruits in many inhabitants of this area, as well as of Beirut and other parts of Syria, who feel that they know French better than Arabic, and who are apt to hold themselves as of a distinctly higher order of civilization than the people of the interior. It is among these that the idea of a complete political separation of the Lebanese area from the rest of Syria has taken root.

The propinquity of this area led the Turkish government to be lenient and favorable to Christians and others in adjacent regions, so that no very sharp line of difference of prosperity is visible. Nevertheless the appeal of lighter taxes and military service, greater security and opportunities for office-holding has an effect upon Christians in neighboring areas, so that many of them incline toward a Greater Lebanon under a permanent French mandate. But there is a considerable party, even among the pro-French, who are opposed to becoming a part of France. This is in fact the official Maronite position.

Any revision of the situation should not diminish the security of the inhabitants of the Lebanon, but should raise the rest of Syria to a like security. This can be provided for in a United Syria by a sufficient measure of local autonomy. Care should be taken to avoid leaving this portion of the country in a position of perpetual special privilege, in which the common burdens would rest more heavily on other areas.

III-THE AREA UNDER ARAB OCCUPATION

1. The Commission spent nine days in Damascus, six of which were filled up with interviews, held with representatives of religious and political groups, councils and boards of the Government, and prominent officials and other notable persons of every grade, including even the Emir Feisal and General Allenby. More time was spent here than anywhere else in Syria, because Damascus will he the capital of United Syria, if such be created, and an Arab government over O. E. T. A. East is already in operation there, showing much activity and endeavoring by accomplishment, display, and intrigue to prepare the way for the larger unity. During the Commission's visit, the "Syrian Congress" met, whose charter and program are described below. The bazars were placarded with the signs "We want absolute independence," and these were removed by government orders. The interview of the Commission with the Mufti, Radi, and Ulema was published with considerable accuracy in the local newspapers (of course by no act or permission of the Commission) and this gave rise to animated discussions on the part of the people and the press. The Commission accepted hospitality from the Emir Feisal on two occasions.

In the midst of the stay in Damascus a trip was taken southward to Amman and Deraa for the purpose of conferring with people from the edge of the desert. The note received from all Moslems was for complete independence without protection or a mandatory power; but recognizing that they need financial and economic advice, they proposed after the recognition of independence to ask advisers from America. Eloquent Arab orators appealed to America, as having freed them, to uphold their independence before the Peace Conference, saying that they hold our country responsible before God for completing the work we have begun. The Christians, who are few in these areas, were in great fear. They desire that a strong mandatory power be appointed over Syria, so that they may have full protection; they prefer that Britain be that power, and that the area be annexed to and governed with Palestine.

After leaving Damascus, a day was spent at Baalbek, where was encountered first the struggle for and against annexing "Hollow Syria" (known as the Bekaa) to the Greater Lebanon. After ten days in O. E. T. A. West, the Arab area was entered again by the road from Tripoli to Homs. Delegations were heard at Homs and Hama, after which three days were spent in Aleppo. Besides hearing delegations of all important Allepine groups and opinions, visits were paid to the centers of relief for refugee Armenians.

The claim for the independence of Mesopotamia was presented very vigorously in the north. Certain groups at Aleppo were much interested, however, in pushing the boundary of Syria well to the east, so as to include the Syrian desert.

2. Attitude of the Occupying Government. -The higher Arab officials include a number of men of dignity, ability, intelligence, and apparent honesty and patriotism. Practically all are Syrian born. Some of them, as General Haddad Pasha, chief of police and gendarmerie, and Said Pasha Zoucair, financial adviser, have been trained under British Administration in Egypt, and others, as Col. Yussef Bey, aide-de-camp of the Emir Feisal, General Jaafar Pasha, Military Governor of Aleppo, and Ihsan Allah Djabri, Mayor of Aleppo, have had their education and experience in the Turkish service. Most of the lower officials in this area (as well as in the other O. E. T. A. regions) have simply been continued from the Turkish regime, and in many cases are said to practice extortions and malversations much as under the former Government.

Every effort was made to do honor to the Commission and execute its wishes. Sometimes ostentatious attempts were made to give the impression of absolute non-interference with freedom of access to an expression before the Commission.

3. Wishes of the People.- The declarations in O. E. T. A. East were much nearer to unanimity than in the South or the West, as may be seen by a glance at the Tables of "Petition Summaries." The greater part of the declarations both oral and written. conformed to the resolutions of the Syrian Congress at Damascus, which is discussed separately below. This program was reached by the action of conflicting forces, in the presence of a general feeling that it was overwhelmingly important for reasons of national safety to reach unity of expression. The pressure brought to bear by the Government and the different political parties was of undoubted weight in bringing into line opinions of a more extreme sort, such as those in favor of independence in the highest degree and those which called for a perpetual strong mandatory control. But on the whole there can be no doubt that the main elements of this program represent the popular will as nearly as that can be expressed in any country.

The people of the area declared themselves almost unanimously for United Syria, for its complete independence, and against any help from France, and against the Zionist program. The Moslems were in nearly unanimous agreement upon a request for American assistance. The Jews asked for autonomy for themselves, and the Zionist scheme for their brethren in Palestine. The Druses were for the Arab Government under a British mandate. The Christians were divided, partly by sects and partly by geographical location. All of the few Christians in the south, including Latin Catholics were for a British mandate, with America in case for any reason Britain cannot come. So also were the Greek Orthodox of Damascus and a portion of the Greek Orthodox farther north. The small groups of Protestants were for an Anglo-Saxon mandate, some preferring America and some Britain. The Orthodox Syrians were for America. All the Catholics (except at Amman and Deraa) and the Maronites were for France. Nearly all of the Christians were for a strong mandatory control.

4. The Syrian Congress at Damascus.- From the time of reaching Jerusalem, the Commission began to be told of a congress that was in preparation, to be held soon at Damascus, which would for a large part of the population determine the question of a mandate. Sessions were held while the Commission was at Damascus, and on the last day there, a deputation presented to the Commission the program that had been prepared.

The Congress was not elected directly by the people, or by a fresh appeal to the people, the reason given being that time was lacking to revise the voting lists and carry through a new scheme. At the last Turkish election, before the war, electors were chosen to select deputies for the Turkish parliament. The survivors of these electors chose the members of the Damascus Congress. Criticisms were made against the plan of choice to the effect that it was unconstitutional and extra-constitutional, that the electors had mostly belonged to the Party of Union and Progress, and that the members of the Congress were not distributed in proportion to population. Sixty-nine members attended, and about 20 others from the west and north had been elected, but bad not arrived. There were a number of Christians in the Conference, but no Jews, though some Jews among the electors were said to have given their approval. Much evidence goes to show that the program prepared represents well the wishes of the people of Syria. The program is as follows:

"We, the undersigned, members of the General Syrian Congress, meeting in Damascus on Wednesday, July 2, 1919, made up of representatives from the three Zones, viz., the Southern, Eastern, and Western, provided with credentials and authorizations by the inhabitants of our various districts, Moslems, Christians, and Jews, have agreed upon the following statement of the desires of the people of the country who have elected us to present them to the American Section of the International Commission; the fifth article was passed by a very large majority; all the other articles were accepted unanimously.

"1. We ask absolutely complete political independence for Syria within these boundaries. The Taurus System on the North; Rafeh and a line running from Al-Juf to the south of the Syrian and the Mejazian line to Akaba on the south; the Euphrates and Khabur Rivers and a line extending east of Abu Kamal to the east of Al-Juf on the east; and the Mediterranean on the west

"2. We ask that the Government of this Syrian country should be a democratic civil constitutional Monarchy on broad decentralization principles, safeguarding the rights of minorities, and that the King be the Emir Feisal who carried on a glorious struggle in the cause of our liberation and merited our full confidence and entire reliance.

"3 Considering the fact that the Arabs inhabiting the Syrian area are not naturally less gifted than other more advanced races and that; they are by no means less developed than the Bulgarians, Serbians, Greeks, and Roumanians at the beginning of their independence, we protest against Article 22 of the Covenant of the League of Nations, placing us among the nations in their middle stage of development which stand in need of a mandatory power.

"4. In the event of the rejection by the Peace Conference of this just protest for certain considerations that we may not understand, we, relying on the declarations of President Wilson that his object in waging war was to put an end to the ambition of conquest and colonization, can only regard the mandate mentioned in the Covenant of the League of Nations as equivalent to the rendering of economical and technical assistance that does not prejudice our complete independence. And desiring that our country should not fall a prey to colonization and believing that the American Nation is farthest from any thought of colonization and has no political ambition in our country, we will seek the technical and economic assistance from the United States of America, provided that such assistance does not exceed twenty years.

"5. In the event of America not finding herself in a position to accept our desire for assistance we will seek this assistance from Great Britain, also provided that such assistance does not infringe the complete independence and unity of our country, and that the duration of such assistance does not exceed that mentioned in the previous article.

"6. We do not acknowledge any right claimed by the French Government in any part whatever of our Syrian country and refuse that she should assist us or have a hand in our country under any circumstances and in any place.

"7. We oppose the pretentions of the Zionists to create a Jewish commonwealth in the southern part of Syria, known as Palestine, and oppose Zionist migration to any part of our country; for we do not acknowledge their title, but consider them a grave peril to our people from the national, economical, and political points of view. Our Jewish compatriots shall enjoy our common rights and assume the common responsibilities.

"8. We ask that there should be no separation of the southern part of Syria, known as Palestine, nor of the littoral western zone which includes Lebanon, from the Syrian country. We desire that the unity of the country should be guaranteed against partition under whatever circumstances.

"9. We ask complete independence for emancipated Mesopotamia and that there should be no economical barriers between the two countries.

"10. The fundamental principles laid down by President Wilson in condemnation of secret treaties impel us to protest most emphatically against any treaty that stipulates the partition of our Syrian country and against any private engagement aiming at the establishment of Zionism in the southern part of Syria, therefore we ask the complete annulment of these conventions and agreements.

"The noble principles enunciated by President Wilson strengthen our confidence that our desires emanating from the depths of our hearts, shall be the decisive factor in determining our future; and that President Wilson and the free American people will be supporters for the realization of our hopes, thereby proving their sincerity and noble sympathy with the aspiration of the weaker nations in general and our Arab people in particular.

"We also have the fullest confidence that the Peace Conference will realize that we would not have risen against the Turks, with whom we had participated in all civil, political, and representative privileges, but for their violation of our national rights, and so will grant us our desires in full in order that our political rights may not be less after the war than they were before, since we have shed so much blood in the cause of our liberty and independence.

"We request to he allowed to send a delegation to represent us at the Peace Conference to defend our rights and secure the realization of our aspirations."

The program mostly speaks sufficiently for itself. Various points in it are commented upon elsewhere in this report. It is the most substantial document presented to the Commission, and deserves to be treated with great respect. The result of an extensive and arduous political process, it affords a basis on which the Syrians can get together, and as firm a foundation for a Syrian national organization as can be obtained. The mandatory power will possess in this program a commitment to liberal government which will be found to be very valuable in starting the new state in the right direction.

CILICIA

1. General-

(a) The Commission did not endeavor to give thorough hearings in this region, feeling that it is not seriously to be considered a part of Syria, and desiring not to open up as yet the question of the Turkish-speaking portion of the former Turkish Empire.

(b) The population statistics vary considerably, but there can be no doubt of a marked Moslem majority in Cilicia before the war, now probably somewhat increased.

2. Wishes of the People

(a) The Turks here, like most of those heard previously, wish to retain Turkish unity under the house of Osman, and leave the question of what shall be the Mandatory Power, if any, to the Turkish Government at Constantinople.

(b) The Arabs (who are mainly Turkish-speaking, but are chiefly Nusairiyeh or Alouites) ask for union with Syria under a French mandate.

(d) The other Christians, a small minority are mostly for France, particularly the Greeks who are working in close relation with the French in the northern regions of Turkey.

(c) The Armenians (who are also chiefly Turkish-speaking) ask for the union of Cilicia with Armenia under an American mandate.

(d) The other Christians, a small minority, are mostly for France, particularly the Greeks who are working in close relation with the French in the northern regions of Turkey.

MESOPOTAMIA

It was impossible for the Commission to visit Mesopotamia at this time. Earnest requests to make such a visit were presented at Damascus and Aleppo, accompanied by complaints that the British occupying forces are restricting freedom of speech, movement, and political action, and that they show signs of an intention to allow extensive immigration from India, to the great detriment of the rights and interests of the inhabitants of the region.

A committee at Aleppo presented a program for Mesopotamia which parallels closely the "Damascus Program" for Syria. An abstract of their claims follows:

1. Mesopotamia should be completely independent, including Diarbekir, Deir-ez-Zor, Mosul, Bagdad, and Muhammerah.

2. The Government should be a constitutional civil kingdom.

3. The king should be a son of the King of the Hejaz, either Abdullah or Zeid.

4. Article 22 of the Covenant of the League of Nations is protested against.

5. No outside government should interfere in the country.

6. After the recognition of independence technical and economical assistance is to be asked for from America

7. Objection is raised to all immigration and especially to that of Hindus and Jews.

8. The complete independence of Syria is asked for.

9. It is asked that there be no interference of France in Syria.

It will be noticed that conformably to the custom of all nascent nations, wide boundaries are claimed, which would involve difficulties with adjacent areas, such as Deir-ez-Zor with Syria, Diarbekir with Armenia, and Muhammerah with Persia.

The Orthodox [Nestorian?-Ed.] Syrian Patriarch, from Der Zafran, near Mardin, met the Commission at Homs. He stated that 90,000 of his people were slain in 1915; when the British came in 1918, all were willing to submit to their rule; but emissaries came from Constantinople to stir up the Kurds and Arabs in favor of independence, and now the situation is much worse, the area occupied by his people should go with Mesopotamia, under the mandate of either America or Britain.

The entire data have been given, thus so fully as to make it possible to test at every point the legitimacy of the inference drawn from the data, and of the final recommendations for action by the Peace Conference.

Further data from our final inference and recommendations were afforded by comprehensive reports of the entire survey, made by all three advisers. The recommendations of the Commissioners have thus been shaped in the light of surveys made from different points of view, and taking into account a wide range of considerations-local, national racial, and religious considerations both of principle and of practical policy; and of the world's dire need of a peace everywhere justly and so permanently based.

II-GENERAL CONSIDERATIONS

The Commissioners have sought to make their survey of Syria, and the report upon Syria now submitted, in the spirit of the instructions given them by the Council of Four, and especially in harmony with the resolutions adopted on January 30, 1919, by the Representatives of the United States, Great Britain France, Italy and Japan, and with the Anglo-French Declaration of November 9, 1918, both quoted at length in the Commission's instructions. The second, third, fourth, fifth, and sixth of the resolutions adopted on January 30th are particularly pertinent to this report, and should be here recorded. The general purpose of the Peace Conference Concerning these areas in the former Turkish Empire is here clearly disclosed.

2. For similar reasons, and more particularly because of the historical mis-government by the Turks of subject peoples and the terrible massacres of Armenians and others in recent years, the Allied and Associated Powers are agreed that Armenia, Syria, Mesopotamia, Palestine and Arabia must be completely severed from the Turkish Empire. This is without prejudice to the settlement of other parts of the Turkish Empire.

3. The Allied and Associated Powers are agreed that advantage should be taken of the opportunity afforded by the necessity of disposing of these colonies and territories formerly belonging to Germany and Turkey which are inhabited by peoples not yet able to stand by themselves under the strenuous conditions of the modern world, to apply to these territories the principle that the well-being and development of such peoples form a sacred trust of civilization and that securities for the performance of this trust should be embodied in the constitution of the League of Nations.

4. After careful study they are satisfied that the best method of giving practical effect to this principle is that the tutelage of such peoples should he entrusted to advanced nations who, by reason of their resources, their experience or their geographical positions, can best undertake this responsibility, and that this tutelage should be exercised by them as mandatories on behalf of the League of Nations.

5. The Allied and Associated Powers are of opinion that the character of the mandate must differ according to the stage of development of the people, the geographical situation of the territory, its economic conditions, and other similar circumstances.

6. They consider that certain communities formerly belonging to the Turkish Empire have reached a stage of development where their existence as independent nations can be provisionally recognized, subject to the rendering of administrative advice and assistance by a mandatory power until such time as they are able to stand alone. The wishes of these communities must be a principal consideration in the selection of the mandatory power....

In every case of mandate, the mandatory state shall render to the League of Nations an annual report in reference to the territory committed to its charge.

The Anglo-French Declaration [Note: This Charter of Freedom, issued a few days prior to the Armistice, is the standard by which the Near East judges the post-Armistice conduct of Europe.] was spread broadcast throughout Syria and Mesopotamia, and, as bearing directly upon our problem, may also well be called to mind at this point:

The aim which France and Great Britain have in view in prosecuting in the East the war let loose by German ambition is the complete and final liberation of the peoples so long oppressed by the Turks and the establishment of national governments and administrations deriving their authority from the initiative and free choice of the native population.

In order to give effect to these intentions, France and Great Britain have agreed to encourage and assist the establishment of native governments and administrations in Syria and Mesopotamia already liberated by the Allies, and in the territories which they are proceeding to liberate, and they have agreed to recognize such governments as soon as they are effectively established. So far from desiring to impose specific institutions upon the populations of these regions, their sole object is to ensure, by their support and effective assistance, that the governments and administrations adopted by these regions of their own free will shall be exercised in the normal way. The function which the two Allied Governments claim for themselves in the liberated territories is to insure impartial and equal justice for all; to facilitate the economic development of the country by encouraging local initiative; to promote the diffusion of education; and to put an end to the division too long exploited by Turkish policy.

Of this Declaration, M. Pichon very properly said in the French Chamber December 29, 1918: "Of course we admit the complete freedom of the Conference, and its right to give these agreements their proper conclusions, but these agreements are binding both upon England and upon us." This statement is the more significant because it is exactly these two peoples of the Allies who are immediately related to the problems in the Arabic-speaking portions of the Turkish Empire. Our survey made it clear that this Anglo-French Declaration and similar utterances of the Peace Conference, and President Wilson's Fourteen Points, had made a deep impression upon the Syrian people and lay in the background of all their demands. The promises involved not only cannot justly be ignored by the Peace Conference, but should be faithfully fulfilled. This is particularly true of the British-French Declaration; for it is completely in accord with the repeated statements of the aims of the Allies, and was expressly directed to the Arabic-speaking portions of the Turkish Empire especially Syria and Mesopotamia.

It is noted that these resolutions of January 30, 1919, and this Declaration of November 9, 1918, clearly look to complete separation of the Arabic-speaking areas from Turkey propose that Syria and Mesopotamia shall not be colonies in the old sense at all; shall not be exploited for the benefit of the occupying power; but shall rather be directly encouraged and assisted in developing national independence as quickly as possible. And the Declaration makes the promises equally binding for Syria and Mesopotamia.

The resolutions and declaration invoked in the instructions given to our Commission thus form the basis of the whole policy of sending a Commission, and of ascertaining the desires of the people.

The sincerity of the professed aims of the Allies in the war, therefore, is peculiarly to be tested in the application of these aims in the treatment of the Arabic-speaking portions of the former Turkish Empire. For the promises here made were specific and unmistakable. It is worth consideration, too, that the whole policy of mandatories under the League of Nations might here be worked out with special success, and success here would encourage the steady extension of the policy elsewhere, and do something so significant for world progress as to help to justify the immeasurable sacrifices of the war. There is also probably no region where the Allies are freer to decide their course in accordance with the principles they have professed.

The gravity of the Syrian problem is further to be seen in certain well-known facts. The fact that the Arabic-speaking portion of the Turkish Empire has been the birthplace of the three great religions: Judaism, Christianity, and Islam, and that Palestine contains places sacred to all three, makes inevitably a center of interest and concern for the whole civilized world. No solution which is merely local or has only a single people in mind can avail.

As a portion of the bridge-land uniting Europe, Asia, and Africa, too-where in a peculiar degree the East and the West meet-Syria has a place of such strategic importance, politically and commercially, and from the point of view of world civilization, as also to make it imperative that the settlement here brought about should be so just as to give promise of permanently good results for the whole cause of the development of a righteous civilization in the world. Every part of the former Turkish Empire must be given a new life and opportunity under thoroughly changed political conditions.

The war and the consequent breaking up of the Turkish Empire, moreover, give a great opportunity-not likely to return -to build now in Syria a Near East State on the modern basis of full religious liberty, deliberately including various religious faiths, and especially guarding rights of minorities. It is a matter of justice to the Arabs, in the recognition of the Arab people and their desire for national expression, and of deep and lasting concern to the world, that an Arab state along modern political lines should be formed. While the elements are very various, the interests often divisive, and much of the population not yet fitted for self-government, the conditions are nevertheless as favorable as could be reasonably expected under the circumstances to make the trial now. The mixed and varied populations have lived together with a fair degree of unity under Turkish domination, and in spite of the divisive Turkish policy. They ought to do far better under a state on modern lines and with an enlightened mandatary.

In any case, the oversight of a mandatory power, and of the League of Nations, would prevent this attempt from taking such a course as that taken by the Young Turk Movement. The Arabs, too, will know that this is their best opportunity for the formation of an Arab State, and will be put on their mettle to achieve a distinct success. The insight and breadth of sympathy revealed by Emir Feisal make him peculiarly well fitted, also, for the headship of a State involving both Oriental and Occidental elements. The trial at least could safely be made under a sympathetic mandatary Power, and made with good promise of success. If the experiment finally failed division of territory could still follow. But to begin with division of territory along religious lines is to invite increasing exclusiveness, misunderstanding, and friction. As Dr. W. M. Ramsay has said concerning certain other portions of the Turkish Empire:

"The attempt to sort our religions and settle them in different localities is wrong and will prove fatal. The progress of history depends upon diversity of population in each district." And there is real danger in breaking Syria up into meaningless fragments.

Any policy adopted, therefore, for Syria should look to "the establishment of a national government and administration deriving their authority from the initiative and free choice of the native populations," and should treat it as far as possible in harmony with its natural geographic and economic unity. This is the natural course to be taken, if at all feasible. It is directly in line with the expressed purpose of the Peace Conference.

And it is the plain object of the desires and ambitions of a large majority of the population concerned.

It is interesting, also, to find that both British and French officers in Syria seemed agreed in the belief that the unity of all Syria under one mandatary was desirable; and that there were certain to be constant friction and dangers to peace among British, French, and Arabs, if both British and French remained in the country.

On the other hand, the practical obstacles to the unity of Syria are: The apparent unwillingness of either the British or the French to withdraw from Syria-the British from Palestine, or the French from Beirut and the Lebanon; the intense opposition of the Arabs and the Christians to the Zionist Program; the common Lebanese demand for complete separate independence; the strong feeling of the Arabs of the East against any French control; the fear on the part of many Christians of Moslem domination; and the lack of as vigorous a Syrian national feeling as could be desired. These obstacles will be discussed in the recommendations of the Commissioners.

In the light, now, of these practical obstacles to the unity of Syria, of the general considerations favoring that unity, and of the wide range of data secured by our survey, we turn to our recommendations.

III-RECOMMENDATIONS

The commissioners make to the Peace Conference the following recommendations for the treatment of Syria:

We recommend, as most important of all, and in strict harmony with our Instructions, that whatever foreign administration (whether of one or more powers) is brought into Syria, should come in not at all as a colonizing Power in the old sense of that term, but as a Mandatary under the League of Nations with the clear consciousness that "the well-being and development" of the Syrian people form for it a "sacred trust."

(1 ) To this end the mandate should have limited term, the time of expiration to be determined by the League of Nations, in the light of all the facts as brought out from year to year, in the annual reports of the Mandatary to the League or in other ways.

(2) The Mandatary Administration should have, however, a period and power sufficient to ensure the success of the new state, and especially to make possible carrying through important educational and economic undertakings, essential to secure founding of the State.

(3) The Mandatary Administration should be characterized from the beginning by a strong and vital educational emphasis, in clear recognition of the imperative necessity of education for the citizens of a democratic state, and for the development of a sound national spirit. This systematic cultivation of national spirit is particularly required in a country like Syria, which has only recently come to self-consciousness.

(4) The Mandatary should definitely seek, from the beginning of its trusteeship, to train the Syrian people to independent self-government as rapidly as conditions allow, by setting up all the institutions of a democratic state, and by sharing with them increasingly the work of administration, and so forming gradually an intelligent citizenship, interested unselfishly in the progress of the country, and forming at the same time a large group of disciplined civil servants.

( 5 ) The period of "tutelage" should not be unduly prolonged, but independent self-government should be granted as soon as it can safely be done, remembering that the primary business of governments is not the accomplishment of certain things, but the development of citizens.

(6) It is peculiarly the duty of the Mandatary in a country like Syria, and in this modern age, to see that complete religious liberty is ensured. both in the constitution and in the practice of the state, and that a jealous care is exercised for the rights of all minorities. Nothing is more vital than this for the enduring success of the new Arab State.

(7) In the economic development of Syria, a dangerous amount of indebtedness on the part of the new state should be avoided, as well as any entanglements financially with the affairs of the Mandatary Power. On the other hand the legitimate established privileges of foreigners such as rights to maintain schools, commercial concessions, etc., should be preserved, but subject to review and modification under the authority of the League of Nations in the interest of Syria. The Mandatary Power should not take advantage of its position to force a monopolistic control at any point to the detriment either of Syria or of other nations; but it should seek to bring the new State as rapidly as possible to economic independence as well as to political independence.

Whatever is done concerning the further recommendations of the Commission, the fulfillment of at least the conditions now named should be assured, if the Peace Conference and the League of Nations are true to the policy of mandataries already embodied in "The Covenant of the League of Nations." This should effectively guard the most essential interests of Syria, however the machinery of administration is finally organized. The Damascus Congress betrayed in many ways their intense fear that their country would become, though under some other name, simply a colonial possession of some other Power. That fear must be completely allayed.

B. We recommend, in the second place that the unity of Syria be preserved, in accordance with the earnest petition of the great majority of the people of-Syria

(1) The territory concerned is too limited, the population too small and the economic, geographic, racial and language unity too manifest, to make the setting up of independent states within its boundaries desirable, if such division can possibly be avoided. The country is very largely Arab in language, culture, traditions, and customs.

(2) This recommendation is in line with important "general considerations" already urged, and with the principles of the League of Nations, as well as in answer to the desires of the majority of the population concerned.

(3) The precise boundaries of Syria should be determined by a special commission on boundaries, after the Syrian territory has been in general allotted. The Commissioners believe, however, that the claim of the Damascus Conference to include Cilicia in Syria is not justified, either historically or by commercial or language relations. The line between the Arabic-speaking and the Turkish-speaking populations would quite certainly class Cilicia with Asia Minor, rather than with Syria. Syria, too, has no such need of further seacoast as the large interior sections of Asia Minor.

(4) In standing thus for the recognition of the unity of Syria, the natural desires of regions like the Lebanon which have already had a measure of independence, should not be forgotten. It will make for real unity, undoubtedly, to give a large measure of local autonomy, and especially in the case of strongly unified groups. Even the "Damascus Program" which presses so earnestly the unity of Syria, itself urges a government "on broad decentralization principles."

Lebanon has achieved a considerable degree of prosperity and autonomy within the Turkish Empire. She certainly should not find her legitimate aspirations less possible within a Syrian national State. On the contrary, it may be confidently expected that both her economic and political relations with the rest of Syria would be better if she were a constituent member of the State, rather t