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Khalidi, W., The Arab Prespective", The End of the Palestine Mandate, Luis, R., & Stookey,
R.W.(edt.), London, 1986.

203

Liebreich, F, The Israeli Navy during the War of Independence 1948-1949, (part of the M.A.
' , 9.1994 .
, Shulman, Paul, "From my point of view" , 12.1987

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205

THE ISRAELI NAVAL FORCES

THE ESTABLISHING YEAR
The setting up and consolidation of the Naval
Forces during the War of Independence

Anat Kidron
THESIS SUBMITTED IN PARTIAL FULFILMENT OF THE REQUIREMENTS FOR THE M.A DEGREE

University of Haifa
Faculty of Humanities
Department of Eretz Israel Studies

October 2000

206

THE ISRAELI NAVAL FORCES

THE ESTABLISHING YEAR
The setting up and consolidation of the Naval
Forces during the War of Independence

By: Anat Kidron

Supervised by: Professor Gelber Yoav

THESIS SUBMITTED IN PARTIAL FULFILMENT OF THE REQUIREMENTS FOR THE M.A DEGREE

University of Haifa
Faculty of Humanities
Department of Eretz Israel Studies

October 2000

207

THE ISRAELI NAVAL FORCES

THE ESTABLISHING YEAR
The setting up and consolidation of the Naval

Forces during the War of Independence

Anat Kidron

Abstruct

The thesis theme is the setting up of the Israeli Naval Forces during the War of Independence, up to the cease
fire agreement of July 1949.
My work is intended to examine the decision makers guide lines in setting up the naval forces in accordance
to the model in which it was established and from which sources was it fed,what were the aims of the force at
that time , its linkage to the Chief of Staff,General Staff and the Ministry of Security, The manpower
composition- professional manpower and military command- . Special emphasis was put on the absorption of
the PAL- YAM members and their place in the Naval Forces.
THEORETICAL RFAME WORK:
Until the out brake of the War of Independence there was no question at stake of establishing a military naval
force. A military naval infrastructure started to develop only in the years of 1945-1947 with the underground
immigration by the Mossad for Aliya. The civil naval infrastructure was not expertly developed and was
divided into several areas:
1) Merchant naval infrastructure that included the company ATID that was

established in 1934,

NACHSHON that was established in 1936 by the General Workers Organization and the Kibutz Meuchad and
ZIM that was established by the General Workers Organization and the Jewish Agency in 1946.
2)Fishing infrastructure that included apart from private fishermen , groups of settlers
who began uniting in 1935 (It must be emphasis that those groups were exceptions as
opposed to settlers whose aims were reclamation of land and agricultural settlements in
Eretz Israel that time.).
3)Youth movements and naval sports associations- among them 'Elitzur', 'Zvulun', 'Sea Scouts', and the
naval unit of

208
'Hapoel'.
4) The naval establishment that included the naval department of the Jewish Agency that
from 1935 it was David Ben-Gurion who was the commander and the 'CHIL'- a civilian
body that was established in order to encourage the naval and civilian shipping that
established in 1938 the Naval School in association with the Haifa Technion.
All those civilian bodies dealed with shipping and naval matters out of deep ideology of
mastering the sea as part of the arising Zionism.
The merchant naval trade, the seashore agriculture (fishing)and the marine sport were
caught as a legitimate part of the zionist dream.
The fact that few had this dream caused for minimum resources to be allocated to that
area.
In the military area it was mainly the Haganah that delt with a limited naval activity.
The effort was concentrated around the coastal guard and helping out with the illegal
immigration, an effort that was counted as the most important national one.
Hence, the PAL-YAM was established and the main training that its people received was
taking charge of leading the illegal immigrants to a safe shore and being in charge of the
actual landing of the ships. An exceptional unit was the naval demolition unit that was
established within the frame of the 4th regiment of the PALMACH, Originally it was
formed to fight against the British mandate but was assigned to help out with the illegal
immigration issues, but its nature of activity was different.
A military naval arising could be noted in BETAR established in the Naval School of
Civitavecchia (Harbor north west of Rome) Italy, in sail training of SARA A (years 19351936), but this kind of activity was limited in capacity.
For limited resources in the naval sphere one can point out the fact that the Israeli Arabs
did not have any naval skills that could be a threat to the Jewish settlers- (the YISHUV).
Despite the fact that the Arabs had a total advantage in the areas of fishing and harbor
work they did not have the ability to develop the technology. A military Arab abilities had
no records at all by that time and actually , starting with the civil war (The declaration of
Independence Nov 29th) it was proved that the Israeli Arabs are not using the naval
channel as part of their struggle. The HAGANAH , that saw the Israeli Arabs as a central
main enemy to Zionism , did not centralized any efforts towards developing naval
warfare. The naval force functions were mainly concentrated in landing, transport and
shore warfare- functions that were adopted by the PAL-YAM in the illegal immigration
against the British mandate.
Ben-Gurion saw the military threat upon Israel differently. Starting in 1936 he warned
that the real danger is from the international direction. Especially he had warned against
military interference of Arab forces such as Iraq and Saudi Arebia. He saw that there is a
process being formed within the Arab world and saw within that the main danger. After

209
the English-American committee decisions of May 1946 were established he saw that the
process being developing. In a series of Arab summit conferences they were trying to
establish a homogeneous policy against the zionism and to establish ways of struggle
against it. (It should be noted that in the HAGANAH were few that thought the same ,
such as Yochanan Ratner , but, in fact no updating was done in the HAGANAH plans. In
the years 1945-1946 they were too busy fighting against the British , being a resistance
movement and not having the time nor the ability to adjust for a general warfare against
a total coordinated Arab forces.)
As for the naval threat ,Egypt was a big and central force in the area. The Jewish settlers
had a problem of gathering Intelligence, a lot of the facts that were given were based on
publications such as the Jans publications, that might bring to light a theoretical ability
but not necessarily a practical one (weapons and manpower). The Egyptians had a very
developed merchant marine and their military naval was based mainly on old British
vessels and on British professional instructors in training and setting up the navy.
On the eve of the War of Independence the danger from Egyptian side was seem to be
more of a threat for naval blockade and a sea invasion via the sea. Despite the long
beach lines of Syria and Lebanon they were not considered as a serious naval threat. The
Syrians did not have even one deep water harbor and there were no indications on
military abilities as such.
Examining the various plans that were discussed among the settlers for establishing a
naval force on the eve of the war , one could see the main differences that derived from
the different conception of the naval threat.
The PAL-YAM, when established as well, was mainly aimed to help out with illegal
immigration . This national mission was not in center activity once the State of Israel was
declared. The other naval missions that were assigned for the PAL-YAM were intended to
aid the Land effort- transporting forces, supplies via the sea.
Naval demolition missions that were developed in a much later period of the struggle
were the only missions that seemed to be of a pure naval nature, but the demolition unit
was not considered as part of the PAL-YAM (They were an autonomic unit within the
PALMACH 4th regiment used the PAL-YAM only for supplies and equipment.). Starting
discussions of establishing the naval force its independence and status were not very
clear.
In first plans that were given to Ben-Gurion for establishing an army the Navy was not
mentioned. The Laskov/Eshet program of May 30th 1948 did not mention the navy as an
independent force but rather as part of Special Units Services.
The Ratner/Feinstein program of june 2 nd 1948 has no reference for a separate naval
force, probably because the concept at that time- was to see it as part of the
PALMACH special missions. The Globerman program of may 30 th 1948 omits any notion

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of Naval and Air forces. Ben-Gurion himself suggests in his 1 st program (That was not
authorized by the General Staff) that the naval force will be actually an expansion of the
PAL-YAM manpower wise and will operate as a unit within the Special Units.
From all of the above one could not be sure what was the need, function and status of an
operational Naval Force or if it was needed at all. In the planners eyes it seems that the
Naval demolition unit functions were the only important ones that should be taken under
consideration. To establish a useful Naval demolition unit one does not need a force, all is
needed were supplies and weapons that can be utilized by other forces as well. The
missions were caught as specific missions suitable for Special Units. (At that time there
were plans for establishing a naval unit that would be mainly a coastal guard unit.).
This approach is based on the conception of the Naval threat of which the planners were
not aware of. Since the roll of escorting illegal immigration was temporary with the
ending of the British mandate, the alternative was escorting immigrants ships and
transporting supply due to a possible Arab blockade. The Arab Palestinian naval force was
not a threat, mainly because it was not existed..
And as long as the conception of the enemy consisted mainly on the Palestinian Arabs
(And the British in certain cases) the need for a naval force was not clear enough. On
these grounds the conception of a small future naval force can be understood.
Examining the specific suggestions for developing a naval force (The plans arose starting
1947 as a consequence to the Nov 29 th declaration and they are separated from the
debate of the status of that kind of a Naval Force within the army.) it seems that here as
well this particular force has no future intention of naval warfare, but more as a coastal
guard. The civilian sector plans (mainly the Jewish Agency and the CHIL) included free
coastal access and operation duties. Fulfillment of naval transportation to Israel
(Immigrants ships, merchandise, trade and supplies) breaking through any possible sea
blockade, coastal communication in case of isolation ( Transporting goods, supplies and
Land forces).
The General Staff plan (based on the PAL-YAM as a basic force), added to the above mentioned functions of
naval landings. Demolition functions were absent from all plans, probably out of the assumption that they will
be included in the Special Unit. (According to the Alon concept, and out of the naval threat concept, as
mentioned above, it did not leave much option for demolition missions against the Arabs. The demolition unit
missions before the establishment of Israel was directed towards the British.).
Ben-Gurion was not a partner to that concept from the beginning just as he was not a partner for the naval
threat concept.

The fundamental that the Egyptian fleet could put a sea blockade upon Israel required

establishing a naval force and not only for coastal functions. Such a navy required tools, professional
knowledge and technology that the young state did not have.
A difficult star can be observed from examining the extent of the young naval force. In December 1948 the navy
was only 2% of the I.D.F manpower. Between October 1947 to March 1949 the budget were 1.5% out of the
general I.D.F budget (procurement budget not included taking under consideration that this is the highest one

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since equipment was most expensive.). In any case , the young navy was not set up for a real naval war as it was
only at the end of the war that they began to have the necessary vessels needed.
There was a Shadow Fleet shaky immigrants ships that were towed to the harbor by the British and were
renovated by the navy, especially the 2 Korvettes that were called Navy Force Haganah and Navy Force
Wedgwood.
The Naval Force contribution during the war was especially noted in these areas:
# Prevention of sea blockade on Israel.
# Deterrence of the Egyptian navy from conducting aggressive operations such as bombing the coastal cities or
conducting landing forces.
# Assistance to land operations, supplies and pinning down forces and coast bombing.
# The Landing activity could be summon up as total failure.
The Naval Force ended The War of Independence as the weakest force of the I.D.F. . The Navy infrastructure
was weak in equipment, professional manpower, organization development and warfare naval concept
development.
During the war an equipment infrastructure was built- inserting the Shadow Fleet into action at the
beginning of the war made the naval operations possible. The majority of the procurement arrived after the
battles, but it enabled a star for establishing an infrastructure on which the navy leaned on later.
Despite of the organization difficulties a naval manpower infrastructure was consolidated. (Especially PALYAM veterans, Merchant fleet, Marine youth movements etc). An engineering infrastructure (especially British
navy veterans), A frame structure of the navy was established

(Divisions into fleets and units) and a

Headquarter was organized. The question of the Headquarter structure function definitions, the professional
subordinate structure- all of that was unsolved and remained vague.
The naval force acted with no law and order and leaned on personal relationships. (also rivalries.).
During the war the navy was consolidated essentially and separated from the army. The causes for that were the
arguments that accompanied its establishing and the difficult inner relationships between the various naval
components. The question whether the navy would develop as a separate force or a force within the General
Forces left its status and professional subordination vague. Its professional ability prevented the force from
participating in large scale during the war. Despite its contribution to the war, the operational volume was very
small.
The navy invested its main energy during the war in building up internally- manpower, supply, equipment and
internal structure- (In naval fleet and land infrastructure.).
From examining the Naval warfare development ability it is mainly developed internally, which means, at those
points were the navy operated on its own. There was a deficiency to work in co-ordination with the Air Force.
Starting January 1949 a co-ordination with the Air Force was strengthen and produced good results. A joint
activity with the Land forces failed and the naval landing operations all failed.
Mutual criticism was heard from PAL-YAM veterans (their main claim was that if the young navy would have
consisted on the PAL-YAM, as they were expecting, its ability and achievement would have been higher.) and
the MACHAL veterans (over seas volunteers) and others.

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The claims that cutting off from the PALMACH and the dissolving of the PAL-YAM within the navy were the
reasons for its weakness during the war where drawn into the historical debate- in publications such as the
PALMACH BOOK and research arguments such as Prof. Meir Paeel point of view.).
In the light of this research it seems to me that the navy did not succeed in being the central force during the
war. The causes for that are not lack of motivation as a result of dissolving the PAL-YAM. The professional
ability and the tools that the PAL-YAM could have contributed to the navy was limited. The PAL-YAM missions
and its training as determined during the Settlers period (The Yishuv) were not appropriate during the War of
Independence. The ability to lean on professional knowledge- contributed by veterans of various naval forces
(such as the British) is what contributed at the end for establishing a professional naval force, suitable to fulfill
naval operational duties. On the other hand it is hard to show the PAL-YAM dissolve within the navy as it
appears from some of the arguments.
There may have been some what not simple problems of command acceptance and maybe even resentment and
bitterness, but problems as such were typical to other sectors of the navy as well.
Examining names and numbers brought out the fact that a large percentage of the PAL-YAM veterans ended
serving in the Naval Forces. The commanding Naval hierarchy consisted on PAL-YAM officers. That together
formed the main leading group of the Navy. One might presume that a large number of PAL-YAM veterans who
did not find their way into the navy also would not have continued in another kind of a naval force, as they have
joined the PAL-YAM as a result of national need and not specifically because of love to the sea.
At the end of the war, Shlomo Shamir appointed as the 1 st Commander of the Naval Forces. Other PAL-YAM
commanders retired from the Navy. No doubt the force lost its unique PAL-YAM spirit, just as the whole army
I.D.F was no longer in the spirit of the PALMACH. In a way, the Israeli society changed as well, compare to
its nature as an Organized Community during the British mandate.
As noted before , at the end of the war, the condition of the Navy was difficult. The Navy suffered difficult
problems of command definitions and command subordination. Its status in the General Staff was not defined
until a much later stage in the war and it was understood more as an aid force to an army which is mainly a
Land Force.
The fact that a lot of groups acted within the force tensions and fights were not a positive contribution to its
operational ability. But still it seems one can not ignore its operational contribution despite its lack of
equipment and manpower shortage.
Foreign reports (such as MACHAL, foreign consultants as Commander Solomon) criticized the Naval Force
and the relationships in it.
Starting mid 1949 a new setting up of the Navy established, in accordance to various recommendations. The first
few months were characterized as complicated tensed relationships between the Naval Force Headquarters, the
General Staff and Ben-Gurion. Shamir was appointed as the Commander of the Navy in May 1949. This was
actually the first appointed commander . (A decision was made to establish the Navy as part of the I.D.F
subordinated to the Chief of Staff and not as a separated unit.) Appointing Shamir started a new era for the
Navy development.
The Navy was established as a mutual effort of the PAL-YAM veterans, British naval veterans, MACHAL
volunteers and others (part from the Merchant fleet). For a long period of time the Navy had to struggle for its

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status and importance as part of the defense layout of the State of Israel. Some say that this struggle for
recognition ended only during the missile-boats fights of Yom-Kippur War- beyond the scope of this thesis.