British Mandate for Palestine

Source: The American Journal of International Law, Vol. 17, No. 3, Supplement: Official
Documents (Jul., 1923), pp. 164-171
Published by: American Society of International Law
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164 THE AMERICAN JOURNAL OF INTERNATIONAL LAW

emnment have a firmconvictionin the justice ofthe claim theyhave hitherto

made forthe inclusionof a clause concerningthe assurance of equal oppor-
tunitiesfortrade and commercein "C" mandates. But fromthe spiritof
conciliationand cooperationand their reluctanceto see the question un-
settledany longer,theyhave decidedto agree to the issue ofthe mandate in
its presentform. That decision,however,should not be consideredas an
acquiescence on the part of His Imperial Japanese Majesty's Government
in the submissionof Japanese subjects to a discriminatory and disadvan-
tageous treatmentin the mandated territories;nor have they therebydis-
carded their claim that the rightsand interestsenjoyed by Japanese sub-
in the past shouldbe fullyrespected.
jects in theseterritories

BRITISH MANDATE FOR PALESTINE1

The Council of the League of Nations:

Whereas the Principal Allied Powers have agreed, for the purpose of
givingeffectto the provisionsof Article22 of the Covenant of the League of
Nations, to entrustto a Mandatory selected by the said Powers the ad-
ministrationof the territoryof Palestine, which formerlybelonged to the
Turkish Empire, within such boundaries as may be fixed by them; and
Whereasthe PrincipalAllied Powershave also agreedthat the Mandatory
should be responsibleforputtinginto effectthe declarationoriginallymade
on November 2, 1917, by the Governmentof His BritannicMajesty, and
adopted by the said Powers,in favorof the establishmentin Palestine of a
nationalhomeforthe Jewishpeople,it beingclearlyunderstoodthat nothing
shouldbe done whichmightprejudicethe civiland religiousrightsofexisting
non-Jewishcommunitiesin Palestine, or the rights and political status
enjoyed by Jewsin any othercountry;and
Whereas recognitionhas therebybeen given to the historicalconnection
of the Jewishpeople with Palestine and to the groundsfor reconstituting
theirnational home in that country;and
Whereas the PrincipalAllied Powers have selectedHis BritannicMajesty
as the Mandatory forPalestine; and
Whereas the mandate in respectof Palestine has been formulatedin the
followingtermsand submittedto the Council of the League for approval;
and
Whereas His BritannicMajesty has accepted the mandate in respectof
Palestine and undertakento exerciseit on behalfof the League of Nations
in conformity with the followingprovisions;and
Whereas by the aforementionedArticle22 (paragraph 8), it is provided
that the degree of authority,controlor administrationto be exercisedby
1LeagueofNationsOfficial Aug.1922,p. 1007. See declarationgivingcondition
Journal,
ofapprovalofthemandatesforPalestineand Syria,infra,p. 193.
 OFFICIAL DOCUMENTS 165

the Mandatory, not having been previouslyagreed upon by the members

of the League, shall be explicitlydefinedby the Council of the League of
Nations;
Confirming the said mandate, definesits termsas follows:

ARTICLE 1
The Mandatoryshall have fullpowersoflegislationand of administration,
save as they may be limitedby the termsof this mandate.

ARTICLE 2
The Mandatory shall be responsiblefor placing the countryunder such
political,administrativeand economicconditionsas willsecurethe establish-
ment of the Jewishnational home, as laid down in the preamble,and the
developmentof self-governing institutions,and also for safeguardingthe
civil and religiousrightsof all the inhabitantsof Palestine, irrespectiveof
race and religion.
ARTICLE 3
The Mandatory shall, so far as circumstancespermit,encourage local
autonomy.
ARTICLE 4
An appropriateJewishagency shall be recognizedas a public body for
the purposeofadvisingand cooperatingwiththe administrationof Palestine
in such economic,social and othermattersas may affectthe establishment
of the Jewishnational home and the interestsof the Jewishpopulation in
Palestine, and, subject always to the controlof the administration,to assist
and take part in the developmentof the country.
The Zionist organization,so long as its organizationand constitutionare
in the opinion of the Mandatory appropriate,shall be recognizedas such
agency. It shall take steps in consultationwith His BritannicMajesty's
Governmentto secure the cooperationof all Jews who are willingto assist
in the establishmentof the Jewishnational home.

ARTICLE 5
The Mandatory shall be responsibleforseeingthat no Palestine territory
shall be ceded or leased to, or in any way placed under the controlof, the
governmentof any foreignPower.

ARTICLE 6
The administrationof Palestine, while ensuringthat the rightsand posi-
tion of other sections of the population are not prejudiced,shall facilitate
Jewishimmigrationunder suitable conditionsand shall encourage,in co-
operationwith the Jewishagency referredto in Article4, close settlement
166 THE AMERICAN JOURNAL OF INTERNATIONAL LAW

by Jewson theland,including statelandsand wastelandsnotrequiredfor

publicpurposes.
ARTICLE 7

The administration forenactinga na-

of Palestineshall be responsible
tionalitylaw. Thereshallbe includedinthislaw provisionsframedso as to
ofPalestiniancitizenship
theacquisition
facilitate byJewswhotakeup their
permanent in Palestine.
residence
ARTICLE 8

The privilegesand immunities of foreigners,includingthe benefitsof

consularjurisdictionand protection as formerly enjoyedby capitulation
orusagein theOttomanEmpire,shallnotbe applicablein Palestine.
UnlessthePowerswhosenationalsenjoyedtheaforementioned privileges
and immunities on August1, 1914,shall have previously renouncedthe
or shallhave agreedto theirnon-application
rightto theirreestablishment,
and immunities
period,theseprivileges
fora specified shall,at theexpiration
ofthemandate,be immediately reestablishedin theirentirety or withsuch
modificationsas mayhavebeenagreeduponbetweenthePowersconcerned.

ARTICLE 9

The Mandatoryshall be responsible forseeingthat the judicialsystem

establishedin Palestineshall assureto foreigners,as wellas to natives,a
completeguaranteeoftheirrights.
Respectforthe personalstatusofthe variouspeoplesand communities
and fortheirreligiousinterests shall be fullyguaranteed. In particular,
the controland administration of Wakfsshall be exercisedin accordance
withreligiouslaw and the dispositions ofthefounders.

ARTICLE 10
Pendingthemakingofspecialextradition relating
agreements to Palestine,
treatiesin forcebetweenthe Mandatoryand otherforeign
the extradition
Powersshallapplyto Palestine.
ARTICLE 11
The administration ofPalestineshalltakeall necessary measuresto safe-
guardtheinterests ofthecommunity in connectionwith the development of
the country,and, subjectto any international obligations accepted by the
Mandatory,shallhave fullpowerto provideforpublicownership or con-
trolof any ofthe naturalresourcesofthe country or of the public works,
servicesand utilitiesestablishedor to be establishedtherein. It shall in-
troducea land systemappropriate to the needs of the country, having re-
of
gard,amongotherthings,to the desirability promoting the close settle-
mentandintensive cultivationoftheland.
 OFFICIAL DOCUMENTS 167

The administrationmay arrangewith the Jewishagency mentionedin

Article4 to constructor operate,upon fairand equitable terms,any public
works,servicesand utilities,and to develop any of the natural resourcesof
the country,in so far as these mattersare not directlyundertakenby the
administration. Any such arrangementsshall provide that no profitsdis-
tributedby such agency, directlyor indirectly,shall exceed a reasonable
rate of intereston the capital, and any furtherprofitsshall be utilizedby it
forthe benefitofthe countryin a mannerapprovedby the administration.

ARTICLE 12
The Mandatory shall be entrustedwiththe controlofthe foreignrelations
of Palestine and the rightto issue exequaturs to consuls appointed by for-
eign Powers. He shall also be entitledto afforddiplomaticand consular
protectionto citizensofPalestinewhenoutsideits territorial limits.

ARTICLE 13
All responsibilityin connectionwiththe Holy Places and religiousbuild-
ings or sites in Palestine,includingthat of preservingexistingrightsand of
securingfreeaccess to the Holy Places, religiousbuildingsand sites and the
freeexerciseof worship,whileensuringthe requirementsof public orderand
decorum,is assumed by the Mandatory, who shall be responsiblesolely to
the League of Nations in all matters connected herewith,provided that
nothingin this articleshall preventthe Mandatory fromenteringinto such
arrangementsas he may deem reasonable with the administrationfor the
purpose of carryingthe provisionsof this articleinto effect;and provided
also that nothingin this mandate shall be construedas conferring upon the
Mandatory authorityto interferewith the fabric or the managementof
purelyMoslem sacredshrines,the immunitiesofwhichare guaranteed.

ARTICLE 14
A special commissionshall be appointed by the Mandatory to study,
defineand determinethe rightsand claims in connectionwith the Holy
Places and the rightsand claims relatingto the different
religiouscommuni-
ties in Palestine. The method of nomination,the compositionand the
functionsof this commissionshall be submittedto the Council ofthe League
forits approval, and the commissionshall not be appointed or enterupon
its functionswithoutthe approval ofthe Council. 2
2 The BritishGovernment,on August31, 1922,submitted to theCounciloftheLeagueof
Nationsa schemefortheHoly Places Commission providedforin Article14 ofthemandate
(Official
Journal,LeagueofNations,November, 1922,p. 1150;textofscheme,ibid.,p. 1153).
At themeetingoftheCouncilon October4, 1922,thequestionwas adjournedforstudyby
and agreement amongtheinterestedPowers(ibid.,p. 1152).-ED.
168 THE AMERICAN JOIJRNAL OF INTERNATIONAL LAW

ARTICLE 15
The Mandatoryshall see that completefreedomof conscienceand the
freeexerciseof all formsof worship,subjectonlyto the maintenance of
publicorderand morals,are ensuredto all. No discrimination ofanykind
shallbe madebetweenthe inhabitants of Palestineon the groundofrace,
religionor language. No personshall be excludedfromPalestineon the
solegroundofhisreligious belief.
The rightofeachcommunity to maintain itsownschoolsfortheeducation
of its ownmembers in its ownlanguage,whileconforming to sucheduca-
tionalrequirements ofa generalnatureas the administration mayimpose,
shallnotbe deniedorimpaired.
ARTICLE 16

The Mandatoryshallbe responsible forexercising suchsupervision over

religiousoreleemosynary bodiesofall faithsin Palestineas maybe required
forthemaintenance ofpublicorderand goodgovernment.Subjectto such
supervision,no measuresshallbe takenin Palestineto obstructor interfere
withtheenterprise ofsuchbodiesorto discriminate againstanyrepresenta-
tiveormemnber ofthemonthegroundofhisreligion ornationality.
ARTICLE 17
The administration of Palestinemay organizeon a voluntarybasis the
forcesnecessaryforthe preservation of peace and order,and also forthe
defenceofthecountry, subject,however, to thesupervision ofthe Manda-
tory,but shallnotuse themforpurposesotherthanthoseabove specified
save withthe consentof the Mandatory. Exceptforsuch purposes,no
military,navalorairforcesshallbe raisedormaintained bytheadministra-
tionofPalestine.
Nothingin thisarticleshallprecludetheadministration ofPalestinefrom
contributing to the costofthemaintenance oftheforcesoftheMandatory
inPalestine.
The Mandatoryshallbe entitledat all timesto use the roads,railways
and portsofPalestineforthemovement ofarmedforcesand thecarriageof
fueland supplies.
ARTICLE 18

The Mandatoryshall see that thereis no discrimination in Palestine

againstthenationalsofanystatemember oftheLeagueofNations(includ-
ingcompaniesincorporated underits laws) as comparedwiththoseofthe
Mandatory or of any foreign state in mattersconcerning taxation,com-
merceornavigation, theexerciseofindustries orin thetreat-
or professions,
mentofmerchant vesselsor civilaircraft. Similarly,thereshallbe no dis-
crimination in Palestineagainstgoodsoriginating in or destinedforany of
the said states,and there shall be freedom of transitunderequitablecon-
ditionsacrossthemandatedarea.
 OFFICIAL DOCUMENTS 169

Subject as aforesaidand to the otherprovisionsof this mandate,the

administrationof Palestinemay,on the adviceof the Mandatory,impose
suchtaxesand customsdutiesas it mayconsidernecessary, and take such
stepsas it maythinkbestto promotethe development of the naturalre-
sourcesofthecountry and to safeguard
theinterests ofthepopulation. It
mayalso,on theadviceoftheMandatory, concludea specialcustomsagree-
mentwithany statetheterritory of whichin 1914was whollyincludedin
AsiaticTurkeyorArabia.
ARTICLE 19
The Mandatoryshalladhereon behalfoftheadministrationofPalestine
to any generalinternational
conventions or whichmaybe
alreadyexisting,
concludedhereafter withtheapprovaloftheLeagueofNations,respecting
theslavetraffic, in armsand ammunition,
thetraffic orthetrafficin drugs,
or relatingto commercialequality,freedomof transitand navigation,
aerialnavigationand postal,telegraphicand wirelesscommunication or
literary, orindustrial
artistic property.

ARTICLE 20
The Mandatoryshallcooperateon behalfoftheadministration ofPales-
socialand otherconditions
tine,so faras religious, maypermit,intheexecu-
tionofanycommonpolicyadoptedbytheLeagueofNationsforpreventing
andcombating disease,includingdiseasesofplantsandanimals.

ARTICLE 21
The Mandatoryshall securethe enactmentwithintwelvemonthsfrom
thisdate,and shallensuretheexecution ofa law ofantiquitiesbasedon the
followingrules. This law shallensureequalityoftreatment in thematter
ofexcavations and archkeological
researchto thenationalsofall statesmem-
bersoftheLeagueofNations.
(1) "Antiquity"meansanyconstruction oranyproductofhumanactiv-
ityearlierthantheyear1700A.D.
(2) The law fortheprotection ofantiquitiesshallproceedby encourage-
mentratherthanbythreat.
Anypersonwho,havingdiscovered an antiquitywithoutbeingfurnished
withthe authorization referredto in paragraph5, reportsthe same to an
of the competentdepartment,
official shall be rewardedaccordingto the
valueofthediscovery.
(3) No antiquitymay be disposedof exceptto the competentdepart-
ment,unlessthisdepartment renounces the acquisitionof any suchantiq-
uity.
No antiquitymayleave the countrywithoutan exportlicencefromthe
saiddepartment.
170 THE AMERICAN JOURNAL OF INTERNATIONAL LAW

(4) Any personwho maliciously or negligentlydestroysor damagesan

antiquity shallbe liable to a penalty to be fixed.
(5) No clearingof groundor diggingwiththe objectof finding antiq-
be
uitiesshall permitted, under penalty of except
fine, to personsauthorized
bythecompetent department.
(6) Equitabletermsshallbe fixedforexpropriation, temporary or perma-
nentoflandswhichmight be ofhistoricalor interest.
archoeological
(7) Authorization to excavateshallonlybe grantedto personswhoshow
sufficientguaranteesof archaeological experience.The administration of
Palestineshallnot,in granting theseauthorizations, act in sucha way as to
excludescholarsofanynationwithout goodgrounds.
(8) The proceedsof excavations may be dividedbetweenthe excavator
and the competent department in a proportion fixedby that department.
If divisionseems impossible for scientific
reasons,theexcavatorshallreceive
a fairindemnity in lieuof a part ofthe find.

ARTICLE 22
English,Arabicand Hebrewshallbe the official languagesof Palestine.
Anystatementor inscription in Arabicon stampsor moneyin Palestine
shall be repeatedin Hebrewand any statementor inscription in Hebrew
shallbe repeatedinArabic.
ARTICLE 23

The administration of Palestineshall recognizethe holy days of the

respectivecommunities in Palestineas legaldaysofrestforthemembers of
suchcommunities.
ARTICLE 24

The Mandatoryshallmaketo the Councilofthe League of Nationsan

annualreportto the satisfaction of the Councilas to the measurestaken
duringthe yearto carryout the provisions ofthe mandate. Copiesofall
laws and regulations promulgated or issuedduringthe yearshallbe com-
municated withthereport.
ARTICLE 25

In theterritorieslyingbetweenthe Jordanand theeasternboundaryof

Palestineas ultimately determined, the Mandatoryshallbe entitled,with
theconsentoftheCounciloftheLeagueofNations,to postponeorwithhold
applicationofsuchprovisions ofthismandateas he mayconsiderinappli-
cable to the existinglocal conditions,and to makesuch provisionforthe
administration oftheterritoriesas he mayconsidersuitableto thosecondi-
tions,providedthatno actionshallbe takenwhichis inconsistent withthe
provisionsofArticles15,16and 18.3
3See Britishmemorandum,approvedby the Council of the League, regardingthe
infra,p. 171.
knownas Trans-Jordan,
territory
 OFFICIAL DOCUMENTS 171

ARTICLE 26
The Mandatoryagreesthat,ifany disputewhatevershould arise between
the Mandatoryand anotherMemberofthe League ofNations relatingto the
interpretationor the application of the provisionsof the mandate, such
dispute,if it cannot be settled by negotiation,shall be submittedto the
PermanentCourt of InternationalJusticeprovidedforby Article14 of the
Covenant ofthe League ofNations.

ARTICLE 27
The consentof the Council of the League of Nations is requiredforany
modification
ofthe termsofthismandate.

ARTICLE 28
In the event ofthe terminationof the mandate herebyconferredupon the
Mandatory,the Council of the League of Nations shall make such arrange-
ments as may be deemed necessaryfor safeguardingin perpetuity,under
guaranteeof the League, the rightssecuredby Articles13 and 14, and shall
use its influenceforsecuring,under the guarantee of the League, that the
Governmentof Palestine will fully honor the financialobligations legiti-
matelyincurredby the administrationof Palestine duringthe periodof the
mandate,includingthe rightsofpublicservantsto pensionsor gratuities.
The presentinstrumentshall be deposited in originalin the archives of
the League of Nations and certifiedcopies shall be forwardedby the Secre-
tary-Generalofthe League ofNations to all membersofthe League.
Done at London the twenty-fourth day ofJuly,one thousandninehundred
and twenty-two.

GENEVA, September23, 1922.

ARTICLE 25 OF THE PALESTINE MANDATE

TERRITORY KNOWN AS TRANS-JORDAN

Note by the Secretary-General

The Secretary-General has the honorto communicateforthe information
of the membersof the League, a memorandumrelatingto Article25 of the
Palestine mandate presentedby the British Governmentto the Council of
the League on September16, 1922.
The memorandumwas approved by the Council subject to the decision
taken at its meetingin London on July24, 1922, withregardto the coming
into forceof the Palestine and Syrian mandates.2
1 BritishWhitePaper,Cmd. 1785.
2 Printed,infra,p. 193.