Reception of the Mission. The special mission to Egypt was thus composed: Viscount Milner (chairman), Sir J. Rennell Rodd, Gen. Sir John Maxwell, Brig.-Gen. Sir Owen Thomas, Sir Cecil Hurst, and Mr. J. A. Spender, with A. T. Loyd and E. M. B. Ingram as secretaries. The mission arrived in Egypt on Dec. 7 1919. Every possible measure had been taken for its security in view of the attitude of organized antagonism which was at once openly manifested by strikes and street demon- strations in which even the Cairene ladies emerged from their seclusion to take part. Every effort was made to prevent Egyptians of note from coming into contact with the mission and those who did so were denounced in the local press. The headquarters of the mission were watched by pickets and the movements of individual members carefully followed, even into the provinces, with a view to preventing any contact with the people. Serious riots at Tanta followed a visit to that city, where military intervention became necessary.
During their stay in Cairo there was a series of attacks on British soldiers and no less than three attempts were made to assassinate Egyptian ministers by bomb-throwing. Soon after the arrival of the mission the chiefs of El Azhar University identified themselves with the Nationalists by a manifesto addressed to the High Commissioner, setting forth the claims of Egypt to complete independence and demanding the with- drawal of the British. A somewhat similar declaration signed by six princes of the khedivial family was sent in a letter to Lord Milner and simultaneously published in the press. The denunciation of the protectorate was the prevailing note.
The general hostility displayed was to some extent mitigated by a declaration issued on Dec. 29, in which the real aims of the mission were clearly stated. The belief that its object was to deprive Egypt of rights hitherto possessed was declared to be without foundation, and free expression of all opinion with- out limit to the field of discussion was invited. But the rela- tions of the mission with the Egyptians were confined to informal discussion and conversations with individuals. These as time went on became so general that its members were able to thor- oughly ascertain the current feeling of the country. A visit was paid by the mission to Alexandria, where its members were enabled to hear the views of the French, Italian and Greek as well as of the British Chamber of Commerce. An exhaustive inquiry was made into the working of every public depart- ment. The principal British officials were consulted, as well as the leading members of the non-official British community. Sir Cecil Hurst devoted a great part of his time to an investiga- tion of the judicial system and the reforms which would become necessary to meet new conditions. Sir John Maxwell and Sir Owen Thomas also visited the Sudan. Before the departure of the mission in March 1920 a large volume of material had been collected, and certain propositions, on which remarkable unanim- ity was displayed, were provisionally drafted with a view to the preparation of a final report in England. While there had been no means of ascertaining how far a settlement on the lines con- templated would command general support in Egypt, it was clear that on certain points both extreme and moderate opin- ion were at one, and a solution on the basis of mutual agreement was obviously preferable to an imposed arrangement.
Milner-Zaghlul Agreement. An opportunity presented itself in April, largely through the good offices of Adli Pasha, of which advantage was taken, to enter into relations with the Egyptian Delegation in Paris, who were now disposed to meet the mission in England. Meanwhile Wahba Pasha, whose health no longer permitted him to stand the strain of office, resigned on May 19 and was succeeded as Prime Minister by Tewfiq Nessim Pasha. Zaghlul with seven other delegates reached London on June 7 1920. Friendly relations were established with them and, after deliberations which extended to the middle of August, the gen- eral lines of an eventual settlement were drafted. But Zaghlul and his friends were not prepared to commit themselves to acceptance without reference to their supporters in Egypt, and four members of the delegation accordingly returned to Cairo with a memorandum outlining the bases on which an agreement
might subsequently be framed. This memorandum, which came to be known as the Milner-Zaghlul Agreement, was in general accordance with the conclusions adopted by the mission in Egypt, though it went somewhat further, especially as regards the right of Egypt to foreign representation. A letter handed to Adli Pasha together with the memorandum made it clear that the latter had no reference to the Sudan, which lay out- side the scope of the suggested agreement.
The proposals embodied in the memorandum may be sum- marized as follows:
In order to establish the independence of Egypt on a secure and lasting basis it is necessary to define precisely the relations between Great Britain and Egypt and to modify the privileges and immuni- ties now enjoyed by capitulatory Powers. Negotiations between accredited representatives of the Governments should contem- plate: a Treaty of Alliance between Great Britain and Egypt under which Great Britain will recognize the independence of Egypt as a constitutional monarchy with representative institu- tions, and Egypt will confer upon Great Britain the rights neces- sary to safeguard her special interests and to enable her to give foreign Powers guarantees which will secure relinquishment of capitulatory rights; Great Britain will defend the integrity of Egyptian territory, and Egypt will, in case of war, render Great Britain all assistance in her power within her own borders. This Treaty will stipulate that Egypt will enjoy right of representation in foreign countries, and in absence of an accredited representative confide interests to the British representative; Egypt will not adopt an attitude inconsistent with the alliance, or enter into any agree- ment with a foreign Power prejudicial to British interests; Egypt will confer on Great Britain the right to maintain a military force on Egyptian soil for the protection of her Imperial communica- tions; Egypt will appoint, with concurrence of H.M. Government, a financial adviser, who will take over powers now exercised by com- missioners of debt and be generally available for consultation; Egypt will similarly appoint a British official in Ministry of Justice, with access to minister, to have cognizance of all matters affecting foreigners and be available for consultation regarding maintenance of law and order; Egypt will recognize right of Great Britain to intervene in case of legislation operating inequitably against foreign- ers; British representative will have a special position and precedence over other foreign representatives ; engagements of British or other foreign officers and officials may be terminated by either party within two years after the Treaty comes into force, with pension or compensation to be therein determined.
Further provisions contemplate: approval by a Constituent Assembly of the Treaty, which would only come into force after foreign Powers have agreed to close their consular courts; a new organic statute securing ministerial responsibility to legislature, religious toleration and protection of rights of foreigners; conclu- sion by Great Britain of agreements with capitulatory Powers, ren- dering possible the extension to foreigners of jurisdiction of mixed tribunals and of Egyptian legislation; transfer to H.M. Govern- ment of rights exercised by foreign Governments under capitula- tions; maintenance of existing treaties to which Egypt is a party on matters of commerce and navigation; liberty to maintain foreign schools and organize religious and charitable foundations; elimina- tion of international element in Alexandria Board of Health; valida- tion of all measures taken under martial law; reorganization of mixed tribunals to undertake all jurisdiction hitherto exercised by foreign consular courts; communication by Great Britain of terms of Treaty to foreign Powers and support of application by Egypt to be admitted as a member of the League of Nations.
The four delegates returned from Egypt in Oct. and accom- panied Zaghlul and his colleagues to London. They reported that the proposed settlement had been well received by the Egyptian public and that any attempted opposition had met with complete failure. At the same time they had been urged to support modifications of certain specific points. These con- templated a limitation of the functions of the Financial Adviser and of the officer attached to the Ministry of Justice; abandon- ment of a provision postponing the coming into force of the contemplated Treaty until agreements had been concluded with the Powers for the modification of the Capitulations, and a formal abolition of the protectorate.
The mission adopted the view that no good purpose could be served by further discussion of details at that stage. These points, on which they preferred to express no opinion, as well as others, could be raised when negotiations were opened. Zaghlul Pasha stated that his efforts to create a favourable atmosphere for settlement would be weakened if he could give no undertaking with regard to these reservations and especially the abolition of the protectorate. The Egyptian delegates then
