S. Adler-Rudel The Evian Conference on the Refugee Question Source: S. Adler-Rudel, Year Book XIII of the Leo Baeck Institute (London 1968), p. 235-273 Part A, B, C, D, E, F Part D VIII The memoranda mentioned in the Report of the Sub-Committee for the Reception of the Organisations provided a collection of extensive and informative material for the delegates of the various governments. Lack of space does not permit giving here even a summary review of all the memoranda, but some of them have to be singled out because of their special significance. The first of those was presented by the group most directly concerned - the Reichsvertretung der Juden in Deutschland (Jewish Council of Germany), whose representatives had had the courage to apply to the Nazi government for authorisation to attend the Conference and to hand in material concerning emigration from Germany. They, as well as the representatives of the Viennese Jewish community, had left their families behind. They knew that their relatives and all the Jews on German territory were being held as hostages until their return, and would have to bear the consequences of any incautious utterance at Evian likely to displease the Nazis. It is with these considerations in mind that their Memorandum 32 must be read. It voices no protest against the injustices to which Jews were being submitted, and no complaints of the increasing discrimination and expulsion. One had to read between the lines in order to understand that the dry and businesslike wording of the Memorandum concealed a subdued but desperate appeal. Yet their cry that the Jews of Germany are determined to do everything within their power, both as to organisation and finance, to assist in any far-reaching plan for emigration from Germany' did not evoke the response expected by the signatories. Another weighty document was the Memorandum of "certain Jewish Organisations concerned with the Refugees from Germany and Austria" 33 . It was perhaps the first time that so many different organisations from so many different countries united in signing the same document. It contained practical proposals for saving the Jews of Eastern and Central Europe and submitted estimates of the sums needed for the first stages of emigration and resettlement. Of notable importance was the Memorandum of the Jewish Agency for Palestine in Jerusalem, which in the five years prior to the Evian Conference had carried out the largest rescue operation in bringing Jews from Germany to Palestine. It explained the practical possibilities, which Palestine could offer if the British Government changed its restrictive policy. The Memorandum of the world Jewish Congress gave a carefully composed survey of the political and economic situation of the Jews in Eastern and Central Europe. It warned the Conference not to limit its efforts to Germany and Austria, as all Jewish communities were endangered by the anti-Semitic propaganda emanating from Germany 34 . In the internal negotiations held between individuals and in groups many of the Latin American delegates said with great frankness that the pressure applied by Germany prevented them from contemplating any action which might be regarded as even slightly critical of that country. Finally an agreement was reached to create, in accordance with President Roosevelt's suggestion, a permanent Intergovernmental Committee with its seat in London, instructed to act on behalf of involuntary migrants and refugees in co-operation with the existing international institutions, i.e. the Nansen Office and the office of the High Commissioner for Refugees at the League of Nations. The Intergovernmental Committee was to start its work immediately and to reconvene in London on the 3rd August. In his closing speech on the 15th July the Chairman of the Conference, Mr. Taylor, summed up the results of the Conference as follows: ... I am happy to report that, due to the serious spirit of co-operation which has animated this first intergovernmental meeting, due to the deep-rooted conviction that we were dealing with a harrowing human problem, we have been able to recommend to our respective Governments the establishment of machinery that should, if we keep the wheels turning, bring about a real improvement in the lives and prospects of many millions of our fellow men. We have done more. We have heard from the Governments of refuge and settle ment confidential statements, which hold out prospects for an increased reception of refugees within the framework of existing immigration laws and practices. We have had from the private organisations, estimates of the extent of the problem with which we are faced, together with proposals for a solution, which we shall take into account in formulating concrete plans for the continuation of our work. Our work must, and it will continue, tirelessly, without interruption, in order that the hopes of the men, women and children, who have placed their faith in our efforts, may not be dispelled and their suffering embittered. This meeting is merely a beginning. From this time forward, the Intergovernmental Committee is in permanent session. I shall expect the participating Governments to remain in close contact with the Chairman in the interim between the adjournment to-day and the reconvening at London...' 35 In the unfavourable climate of political uncertainty created by the occupation of Austria, the threatened dismantling of Czechoslovakia and the disturbances in Palestine, the unanimous adoption of the resolution to establish a permanent bureau was the one positive result of the Conference. (36) It was of small comfort to refugees, potential refugees and Jews in general, and a cruel disappointment for the Jewish representatives who had come to Evian. The great hopes, which they had entertained had been crushed by the vague phraseology and noncommittal attitude dominating the Conference. They instinctively knew what the government delegates pretended not to foresee namely that little would come out of negotiations which the Committee planned to hold with the German authorities. Telephone : - Abbey 6077-78-79. INTERGOVERNMENTAL COMMITTEE. Director: Mr. GEORGE RUBLER, 1, CENTRAL BUILDINGS WESTMINSTER, LONDON, S.W.1. October 17, 1938 Dear Mr. Adler-Rudel: I have for acknowledgement your letter of October 13th, and the situation, which you describe is one of profound interest to me. You, of course, may be assured of my moral support in your efforts to find places of tonal settlement for these people, however, at this time, it is impossible for me to state specifically what I shall be able to do, since it is the function of this office to negotiate with the German Government and the several Governments of final settlement to the end that a framework can be constructed within which orderly emigration from Germany may take place, Faithfully yours, S. Adler-Rudel, Esq., Woburn house, Upper Woburn Place, W. C. 1. In order to achieve practical results, the countries represented at Evian would have had to undertake a radical modification of their restrictions on immigration and to relinquish their reliance on the framework of existing laws. The United States of America and Great Britain showed no invocation to admit a larger number, with the smaller countries following suit, while political considerations on the part of Whitehall severely limited admission into Palestine. Today, thirty years later, the Evian Conference overshadowed by the horrors of the "Final Solution", we remember Evian as an episode in the struggle to save Jews in the most tragic period of their history. Looking back, one cannot help thinking what results the Conference might possibly have yielded if, at that time, a Jewish State had already been in existence. IX The Conference did not achieve the full aims outlined by President Roosevelt. It had not set up an organisation to deal with all refugees. As the pressing problem of Germany and Austria demanded immediate and urgent attention, the adopted resolution recommended that the scope of the Committee's activities be limited for the time being to finding a solution to the problem of thcountries. The next session of the Intergovernmental Committee took place on the 3rd August, 1938 in London in the presence of the delegates of twenty-seven governments. It confirmed the establishment of a permanent bureau in London, elected Myron Taylor as its Chairman and appointed as its director George Rublee, a prominent lawyer and friend of President Roosevelt's. He immediately tried to enter into negotiations with the German Government, which had appointed Dr. Hjalmar Schacht and Ministerialrat Herbert Wohlfahrt as its representatives. But the German authorities systematically sabotaged Rublee's efforts, and it took many months until they finally agreed to meet the Committee's representatives. As feared, the negotiations for the transfer of at least part of the prospective emigrants' capital did not yield any tangible results. In the meantime, the Nazi Government intensified the persecution of Jews, adding those of the Sudetenland and subsequently of all Czechoslovakia to the number of their victims and robbing all of them of their remaining property. The ever-increasing tension on the international scene and, ultimately, the outbreak of World War II made further work virtually illusory. The little that was achieved bore no relation to the hopes, which had been aroused. In spite of good will 37 , it all ended in failure. References: 32. See Appendix I. 33. Already mentioned. See page 239 [of this article]. 34. The last three memoranda are reproduced in the classic work of Arieh Tartakower and Kurt R. Grossmann, The Jewish Refugee , Institute for Jewish Affairs, New York 1944. 35. Proceedings of the Intergovernmental Committee. 36. See Appendix II. 37. See facsimile overleaf of Rublee's letter to Mr. Adler-Rudel of the 17th October 1938. APPENDIX I FOR THE CONFERENCE AT EVIAN THE REICHSVERTRETUNG DER JUDEN IN DEUTSCHLAND (Jewish Council of Germany) Organisation formed by all the Jewish communities and societies of Germany (excluding Austria); to direct, prepare, finance and carry out the Jewish emigration from Germany, takes pleasure in submitting for your consideration the enclosed memorandum and statistics. The Jews of Germany are determined to do everything within their power, both as to organisation and finance to assist in any far-reaching plan for their emigration from Germany. They trust that all governments participating and interested in carrying out such a plan may see their way clear towards offering the chance of a new existence to the Jewish emigrants from Germany. F0R THE CONFERENCE AT EVIAN I. Vital Statistics of the Jews in Germany Number of Jews in Germany (Jews by creed only) Their age structure Their occupational structure Planned emigration is necessary II. Administrative and financial problems of immigration 1. Problems arising out of the laws and regulations dealing with immigration Stabilising the regulations Uniform handling of the regulations Facilitating the formalities Landing money instead of blocked deposits The family as the unit for landing money Facilitating requests for immigrants Contract Labour Colonising Immigration of children and youth Special facilities for the subsequent immigration of the immediate family Directing the emigration 2. The financial aspects of a play of emigration Financing emigration Financing immigration Transferring moneys out of Germany I. VITAL STATISTICS OF THE JEWS IN GERMANY The following figures from the vital statistics of the Jeers of Germany are presented with a view to facilitating an estimate of the number of Jeers able to emigrate from Germany. Number of Jews in Germany (Jews by creed only) According to the last available official census there were in Germany 505.000 Jews by creed as of June 16. 1933. This figure includes Jews in the Saar Basin which number has been estimated as of that same date. The number of Jews by creed as of the beginning of 1933, has been estimated to be approximately 522.000. According to the available figures the Jewish population has decreased, during the period from January 1933 to January 1938, through an excess of deaths over births of approximately 26.000.- through emigration of approximately 130.000.- total decrease approximately 156.000. Emigration in considerable numbers having started as early as January 1933, the decrease should be deducted from the number of Jews at the beginning of 1933 (not from the figure as of June 16. 1933). Accordingly the number of Jews by creed as of the end of 1937 must be estimated to be approximately 366.000. Considering the emigration at the excess of deaths over births during the first half of 1938, the Jewish population of Germany can be estimated to be approximately 350.000. Exhibit 1 is an estimate of the number of Jews emigrating according to the countries of immigration, from the beginning of 1933 to the beginning of 1938. In this connection "country of immigration" means the country in which the emigrant settled definitely. Accordingly, the re-migration of non-German Jews from Germany is not separately estimated. Furthermore, an attempt has been made to estimate the number of those emigrants who left the country of their first choice for another country. Accordingly, the figures contained in the schedule refer to those countries where the Jewish emigrants from Germany have definitely settled. It appears that 42% of the Jewish emigrants have settled overseas, 33% in Palestine (Exhibit 2). The balance, about one quarter of the emigrants, has been absorbed by European countries. It is estimated that there were about 200.000 Jews in Austria at the time of the "Anschluss", so that there are about 550.000 Jews in all of Germany at the present time. There are no exact figures available as to the Jews of Austria and as a consequence all figures mentioned herein refer only to the Jewish population of the "old" Reich. Age Structure: There are no statistics available as of the beginning of 1938 regarding the age structure of the Jews of Germany- It has accordingly been necessary to make an estimate based on the last official census that of 1933, in order to arrive at these figures. We shall then be able to appraise more accurately the number of those eligible for emigration. Exhibit 3 shows the distribution of the Jews over the various age groups on the basis of an estimated total of 350.000. Of these are: 19 years and under 16% (54.300) 20—44 years 30% (106.700) 45—50 years 11% (37.100) over 50 years 43% (151.900) It follows from this age-structure of the Jesus of Germany that it will be necessary to primarily arrange for the emigration of the younger members of families. They will be most likely to adapt themselves successfully to their new circumstances and having taken root will then be able to arrange for their relations to follow them. Occupational structure The occupational structure is another item of importance in appraising the eligibility of prospective emigrants. The figures of the 1933 census can no longer be used as a basis owing to the far-reaching changes, which the occupational structure of the German Jews underwent since 1933. On the other hand there are no exact figures of recent date available. However to illustrate the occupational structure of those eligible for emigration, exhibit 4 lists, according to occupation, all applicants during the first quarter of 1938 for information regarding emigration abroad. According to this schedule, which we think is representative of the whole, there were, out of a total of 14.800 prospective emigrants 29% business men and office employees, 18% craftsmen, 6% professional men, 4% workmen, 4% domestic help and 3.6% farmers. It is evident from this schedule - which should merely serve as an example - that there are among the prospective emigrants those that might easily be expected to be absorbed into the economy of their new country. In addition, by arranging for additional training and retraining, steps are being taken to prepare especially those of younger age, for emigration and speedy absorption into the economic life. Details as to the extent of the re-training already undecontained in exhibit 5. All measures likely to increase the efficiency of our emigrants at manual work, especially as regards the crafts and farming, are constantly being extended so as to insure their speedy absorption by their new country. While in the case of people of younger age it is training in the handicrafts and manual labour which is being emphasised so that they may be absorbed with ease, there will be found among those of higher age a corresponding number of experts in all other occupations. Five generations of Jews have, we think, conclusively demonstrated their efficiency as manufacturers and businessmen, as technicians and engineers, as well as craftsmen and farmers. In corroboration of these accomplishments during a period when they were not restrained in their activities, let us cite the part the Jews of Germany took in building up Palestine. The large number of them that work on the agricultural settlements and cook employment as workers in the cities is proof of the fact that the Jews are willing and able to do any, even the hardest kind of manual work. The Jewish families settled on the I.C.A. farms in the Argentine also demonstrate that the Jews will make good farmers. Planned emigration is necessary: As a result of developments in Germany the Jews are being eliminated in an ever increasing degree from the political, social and economic spheres of the country so that, with the sphere of their lives constantly being narrowed is being endangered the economic basis of their lives. Obviously, a certain proportion of the Jewish population of Germany will have to stay in Germany, as, for lack of suitable employment abroad, reasons of age, health, or a financial or personal nature, they are not yet ready or can never expect to be able to emigrate from Germany. Aside from this there exists, however, a very strong desire to emigrate from Germany among all classes of Jews. But whereas, formerly the possibility to emigrate was primarily a problem to be answered according to the qualities of the individual involved, conditions have lately undergone a steady change so that it is now almost exclusively a question of using all possibilities to immigrate. In order, therefore, to save from complete ruin a population as able and willing to work as the Jews of Germany, it will be necessary to find new outlets for them. Furthermore, their emigration must be planned in such a way that, through modifications of the laws regulating immigration, the other countries of the world will be enabled to absorb, over a period of a fear years, those of the Jews of Germany that are able to leave the country. II. ADMINISTRATIVE AND FINANCIAL PROBLEMS OF IMMIGRATION In recent years the Jews of Germany have taken all measures to facilitate emigration. For their effectiveness, however, they had to rely on the willingness of the countries of the world to admit Jewish immigrants, in spite of the individual efforts, of those willing co emigrate and the collective attempts of the Jewish organisations to find possibilities for immigration, a satisfactory solution of the question has yet to be found. There exists on the one hand an extraordinarily strong pressure to emigrate while on the other hand the facilities for the admission of immigrants to other countries are strictly limited. Furthermore, part of the Jewish population in the countries of Eastern Europe, too, is faced by necessity to emigrate. There is then the danger of the countries of immigration of an unregulated and ill-prepared emigration, constituting a problem of international dimensions. The burden resulting from the admission of refugees, which is the term applied by the receiving countries to the ill-prepared immigrants, has already resulted in a great number of restrictions being placed on immigration and a number of large countries have, for all practical purposes, stopped immigration completely, though economically they might be able yet to absorb some. If, on the other hand, immigrants have undergone a specialised training both in their future work and in the language and the customs of their new country, Jewish immigrants from Germany coming as they do from a country known for its highly developed methods of business and organisation, might well contribute cowards the economic progress and future development of their near country both through their work and their financial resources. It will be necessary, therefore, to regulate the Jewish emigration in such a way as to prevent the coming into existence of a new class of refugees with the problems inherent in it. The emigrants should rather be distributed according to their abilities over countries willing to admit them, in such numbers and at such times as the countries involved can absorb them. Such regulation should deal particularly with the problems arising out of the laws and regulations dealing with immigration (1) and with the financial pre-requisites (2) for the admission and absorption of the emigrants in their new country. Part E 1. Problems arising out of the laws and regulations dealing with immigration. The laws regulating the conditions under which immigrants may or may not be admitted are the most important instrument at the disposal of the government of the countries of immigration for enforcing their immigration policies. Obviously, therefore, we must leave it to the individual governments of the countries that have declared their willingness to co-operate in the solution of the problem, to determine their capacity to absorb immigrants, to set on a plan distributing the immigrants among the individual countries and to formulate the financial as well as formal requirements under which immigration will be possible. On the basis of our experience during the last few years we should like to submit below, as a contribution towards the formulation of such a plan, a few suggestions which we believe vital for the planning and proper carrying out of both emigration and immigration. Stabilising the regulations: Planning for and regulations of emigration, both of which aim at a far-reaching agreement between the interests of the countries of immigration and the interests of the emigrants, presupposes stability in the laws regulating immigration. It would be impossible to formulate plans for the proper Gaining of suitable immigrants in new occupations and languages for any particular country, unless one could be reasonably sure that no material changes in the immigration laws are likely to occur. Uniform handling of regulations: Of equal importance for the proper carrying through of emigration is the uniform handling, on the part of immigration officials and the consulates of the countries of immigration, of the regulations relating to immigration. We have noticed that regulations (for instance those concerning consular fees) have been interpreted differently by different authorities, which has given rise to difficulties which could be avoided by instructing the authorities in charge of immigration accordingly . Facilitating the formalities: Immigration under and within the limits of the immigration laws could be facilitated considerably by the simplification of the necessary formalities. Reducing to a minimum in the case of bona fide immigrants the number of documents required and of formalities to be complied with would be of considerable help. The Jewish organisations charged with the preparation and carrying through of the emigration, are, themselves, interested in a very large measure in seeing to it that immigrants comply with the immigration laws for their country of destination. In view of the fact that the Jewish emigration organisations are responsible not only to the German authorities and the authorities of the countries of immigration, but also to the immigrants themselves, it might be feasible to require only the most important documents such as identification uppers, a certificate from the police department and a medical examination. This would also help to reduce the cost of legalising the various documents, which sometimes run into very large amounts. As regards identification papers, some way should be considered to provide emigrants without nationality or those that have lost it with a document, which will be recognised by the immigration authorities. In cases where the ordinary identification papers have become void it would assist the immigrants in becoming absorbed into their new country, if they could receive a document certifying their admission into the country and granting them the right to stay. Landing money instead of blocked deposits: In some countries admission is dependent on a deposit being made by the immigrants which will remain blocked for a very considerable time. It would help the immigrant in getting settled if the blocked deposit might be replaced wholly or in part by so-called landing money . The immigrant could then use such money as he will have to produce on landing, as has always been the case in a number of countries in any case for immediate investment in a business, instead of having to borrow or waiting for its release which , in some cases, would be carried out in instalments spread over a long time. The family as the unit for landing money: In case of married couples the amount of the landing money should be based on the family as the unit, i.e. husband, wife and children under age, should not be required to produce the landing money for every individual in the family, as is now the case in some countries. This would eliminate difficulties and hardships arising out of the fact that under the present procedure husbands will be separated for long periods from their families and children from their parents. When setting the amount required as landing money the fact should be kept in mind that the immigrants are able to acquire only limited amounts of foreign exchange. Setting too high a landing money might be the equivalent of a stoppage of immigration, because the immigrants will be unable to procure the amounts required. Facilitating requests for immigrants: Certain countries will admit immigrants on the strength of immigration affidavits or requests by one of their citizens. In these cases immigration could be very materially facilitated by a liberal interpretation of the financial status of the guarantor or if the personality and the professional ability of the applicant could be taken into account, or if such guarantees would be accepted from relatives, friends and certain recognised societies. Contract labour: Certain countries will admit contract labour. If a labour exchange, under public control, could be established, it would be possible to import into such countries, workers to the extent as the country sees fit to admit. If the immigrant, on the strength of his contract, will be able to support himself out of his wages without any additional expense and merely on the strength of his ability to work, he might be admitted without any further guarantees as to his financial status. The occupational training of the emigrants could be based on the requirements of the countries of immigration in certain crafts. Colonising: A number of countries, particularly those thinly populated, misfit admit sealers and their families, farmers and farm trained persons who, by starting settlements , would contribute to the development of the country. That Jewish immigrants, if properly trained, are able to colonise successfully is demonstrated by the agricultural and mixed settlements in Palestine, the colonies on which the IDA settled Jewish families in the Argentine - and the success of several smaller Jewish settlements in a number of other countries. We believe that, at the present time, there are several thousand Jewish families in Germany that are willing and able to settle as farmers. If, therefore, the immigration regulations can be adapted to the requirements of such settlements, it would be possible to settle state or privately owned farms with Jewish immigrants in countries with a suitable climate. Immigration of children and youth: From the point of view of the receiving country it appears as though the admission of youthful immigrants offers great advantages. Oar experience shows that those children will most easily and completely adopt the language and the customs of their new country who had previously been raised with an eye towards the particular circumstances of their country of immigration. Up till now 2204 children and juveniles of the ages 14 to 17 have been settled in Palestine with the help of the "Kinder- und Jugendalijah" Furthermore, we have placed 427 children of the ages 10 to 14 in families in the United States. If it could be arranged that the youth be admitted either to be placed with families willing to take them in or to be raised in schools or institutions, we believe that the children, when entering upon a business career, will be familiar with life as it exists in their new countries. Special facfor the subsequent immigration of the immediate family It is our experience that Jewish emigrants will send for their families at the earliest possible moment. As soon as the emigrant has taken root in his new country, he will try to have his family with him once again and he will make requests for the admission of his relations, parents and children. These requests for the admission of relations could be facilitated if the request need merely be accompanied by evidence that the applicant trill be able to take care of his relations after they are admitted. This proposition, if adopted, would help avoid a very extended separation of the individual members of a family. On the other hand, in view of the evidence that will have to be submitted as to the ability to support the new arrivals, the country of immigration is hardly running any risk in this matter. At the moment, several countries still require an immigrant to have resided in the country for a number of years before he will have the right to request the admission of relatives. In many cases this represents an unfair hardship, which could easily be avoided. Directing the Emigration If the above propositions, which have been submitted merely as examples, could be adopted, it would give the organisations in charge of the arrangements, for the Jewish emigration from Germany (Hilfsverein der Juden in Deutschland, Palaestina-Amt der Jewish Agency for Palestine) the ability to influence in an even larger degree than hitherto the choice of the individual emigrant as to where he should go. The choice of the country, which an emigrant selects, is invariably influenced by the emigrant's personal initiative, his professional or occupational tendencies, his family and relations as well as a number of other factors. The personal responsibility in the selection of the country to which he emigrates offers the best assurance that the emigrant will establish himself and develop his capabilities as far as possible without outside assistance. To direct the personal initiative so, that a planned distribution of emigrants among the prospective countries takes place, that excessive concentration in certain countries, districts or cities will be avoided, that the emigrant will be trained both in language and in his trade to meet the requirements of the country to which he contemplates going - in short to so control the emigration that a smooth taking root in the country of immigration becomes possible - this direction of the emigration is a task which can be accomplished by the emigration organisations only if they can reckon with a willingness in principle on the part of the immigration countries to absorb Jewish immigrants and only if a constant contact with the representatives of such countries is possible. There is a justifiable hope that the emigration problem, which for the Jews in Germany has become a matter of life and death, can be solved if the countries to which an emigrant can go will admit a penned and controlled immigration to the extent that their laws the economic and political possibilities permit. 2. The financial aspects of a plan of emigration The emigration of Jews from Germany and their settlement in their new country is inevitably dependent on the financial means which are required being available. The costs of emigration, therefore, are twofold: those, which can be paid for in Reichsmarks and those, which must be made available in the country of immigration. Financing emigration It is of course understood that, as far as possible, the emigrant himself should supply the money required for emigration items, such as transportation, documents, consular fees, clothing and furniture transport. Experience thus far has shown that the largest part of these items can be provided for by the emigrant and his relatives. It is possible beyond this to get from those Jews in Germany who are somewhat better situated financially a large pan of the necessary funds required to finance the emigrant without means. Such sums as may still be lacking after such money raising efforts as are possible have been expanded, must be covered by assistance from Jewish benevolent organisations abroad. Financing immigration In addition to financing the emigration, one must make sure that the immigration in the new country is accomplished on an economic basis which will furnish the assurance that the immigrant can provide for his own development. The Jews in Germany realise perfectly that they may hope for co-operation from other countries only if they do not become public charges in those countries, which are prepared to absorb them. The simplest and least expensive emigrants are those young people who have completed their training in a trade or handicraft and, consequently, can be absorbed in the production process immediately upon immigration. The older the immigrant, the more necessary is it that means be made available for their bare existence for the period immediately following their emigration and for the establishment of their future means of livelihood. In view of the age distinction existing among German Jewish emigrants one must bring the youths who have completed their occupational training to emigration as soon as possible and in the case of the older emigrants arrange for the necessary financial support. In addition adequate Devised amounts are required to comply with the immigration requirements in those countries in which the possession of a certain capital by the emigrant is required. Transferring moneys out of Germany To accomplish an increase in emigration it is therefore necessary to expand the transfer possibilities. Based on experience thus far and in view of the difficulties inherent in this problem, an expansion in transfer possibilities can only be accomplished on the assumption that the Jews in Germany can continue to use their present capital for emigration that it should be possible, with the assistance of the new country, to solve the transfer problem in such a way as to meet the requirements of the German economy. There is another very important aspect, which the solving of the transfer problem brings. Experience indicates that if the transfer of capital is possible amounts could be made available from the sums so transferred for needy emigrants. In this manner it is possible to provide the needy emigrants, via the transfer, with sums that originate from persons with greater means. The capital transfer possibilities in the case of Palestine are such that the emigrants' own capital and sums raised by the Jewish National Fund result in production centres being created which makes a further immigration of Jewish labourers possible. In the case of emigration abroad it is not always true that a capital transfer results in the creation of a production centre for Jewish workmen. It is therefore necessary that any transfer arrangement for people of means should provide for some financing for needy immigrants. Schedule 6 shows in detail emigration via transfer in Europe and Overseas of both wealthier and needy emigrants, whereas emigration via the Palestine transfer arrangement can be seen in schedule 2. If the transfer possibilities which serve Jewish emigration from Germany are to be used to the maximum extent possible, it will be necessary to include this in every type of capital available to the emigrant and to include this in a large and more broadly conceived transfer arrangement than has hitherto been the case. The importance of the Palestine transfer arrangement on which entire Palestinian emigration for Jews in Germany is based may not and should not be influenced by this. Such a concentration can perhaps best be accomplished through establishment of an emigration bank, which could receive the moneys available to emigrants and administer them centrally. It is clear that an emigration bank such as this can have a purpose only if adequate transfer possibilities be offered. This requires the consent of the German government as well as the co-operation of the countries in question. This requires also that new mebe made available for the temporary financing of sums awaiting transfer. It is invariably necessary that the emigrant who has capital in some force awaiting transfer be guaranteed at least a fraction of his Reichsmark capital in foreign exchange, in order that he thus be enabled to await the actual transfer of his capital abroad. There should be no difficulty in finding many projects, which furnish adequate security for such a guarantee. The material and suggestions herein given represent a mere outline of the questions relative to emigration. They should be judged as mere comments, which will require extensive amplifying. In a moment in which one quarter of the members of the Jewish community in Germany are no longer able to sustain themselves and are the recipients of public charity, in which thousands face the prospect of a perpetual unemployment in which tens of thousands of healthy and work eager people who have lost the place in which they lived, and seek with their emigration the possibility of establishing a new existence and contributing their strength for the common good, at such a time are we filled with the hope that the conference in Evian achieve its high purpose, and that it will make possible the creation of new existences for people to whom history has decreed emigration as their mission. Part F Exhibits 38 Exhibit 1 Estimate of the Total Emigrations of Jews from Germany From the beginning of 1933 to the end of 1937 according to the chief countries of immigration. With restriction to total figures the number of the Jewish immigrants considering their further migration from the countries of their first choice to the countries where they have definitely settled has been estimated to be: for Europe of 32.000 25% for Palestine of 43.000 33% for Overseas of 55.000 42% all together 130.000 100% Exhibit 2 a Immigration of Jews from Germany to Palestine from 1933 to the end of 1937 (based on the statistics of the Jewish Agency for Palestine) a) Total Immigration year Persons Immigrants from Germany 1933 6 803 1934 8 497 1935 7447 1936 7 896 1937 3 280 33 923 Legalised Tourists 2 420 Immigrants by the overland route 1 700 Total number of the refugees immigrated from neighbouring countries of Germany and not being of German nationality estimated 4 800 Immigration in Palestine altogether 1933-1937 42 843 APPENDIX II Resolution THE INTERGOVERNMENTAL COMMITTEE ADOPTED BY THE COMMITTEE ON JULY 14th, 1938 Having met at Evian, France, from July 6th to July 13th, 1938: (1) Considering that the question of involuntary emigration has assumed major proportions and that the fate of the unfortunate people affected has become a problem for intergovernmental deliberation… (2) Aware that the involuntary emigration of large numbers of people, of different creeds, economic conditions, professions and trades, from the country or countries where they have been established is disturbing to the general economy, since these persons are obliged to seek re, either temporarily or permanently, in other countries at a time when there is serious unemployment; that, in consequence, countries of refuge and settlement are faced with problems, not only of an economic and social nature, but also of public order, and that there is a severe swain on the administrative facilities and absorptive capacities of the receiving countries; (3) Aware, moreover, that the involuntary emigration of people in large numbers has become so great that it renders racial and religious problems more acute, increases international unrest, and may hinder seriously the processes of appeasement in international relations; (4) Believing that it is essential that a long-range program should be envisaged, whereby assistance to involuntary emigrants, actual and potential, may be co-ordinated within the framework of existing migration laws and practices of Governments; (5) Considering that if countries of refuge or settlement are to co-operate in finding an orderly solution of the problem before the Committee they should have the collaboration of the country of origin and are therefore persuaded that it will make its contribution by enabling involuntary emigrants to take with them their property and possessions and emigrate in an orderly manner; (6) Welcoming heartily the initiative taken by the President of the United States of America in calling the Intergovernmental Meeting at Evian for the primary purpose of facilitating involuntary emigration from Germany (including Austria), and expressing profound appreciation to the French Government for its courtesy in receiving the Intergovernmental Meeting at Evian; (7) Bearing in mind the resolution adopted by the Council of the League of Nations on May 14th, 1938, concerning international assistance to refugees: Recommends: (8) (a) That the persons coming within the scope of the activity of the Intergovernmental Committee shall be (1) persons who have not already left their country of origin (Germany (including Austria)), but who must emigrate on account of their political opinions, religious beliefs or racial origin, and (2) persons as defined in (1) who have already left their country of origin and who have not yet established themselves permanently elsewhere; (b) That the Governments participating in the Intergovernmental Committee shall continue to furnish the Committee for its strictly confidential information, with (1) details regarding such immigrants as each Government may be prepared to receive under its existing laws and practices and (2) details of these laws and practices; (c) That in view of the fact that the countries of refuge and settlement are entitled to take into account the economic and social adaptability of immigrants, these should in many cases be required to accept, at least for a time, changed conditions of living in the countries of settlement; (d) That the Governments of the countries of refuge and settlement should not assume any obligations for the financing of involuntary emigration; (e) That, with regard to the documents required by the countries of refuge and settlement, the Governments represented on the Intergovernmental Committee should consider the adoption of the following provision: In those individual immigration cases in which the usually required documents emanating from foreign official sources are found not to be available, there should be accepted such other documents serving the purpose of the requirements of law as may be available to the immigrant, and that, as regards the document which may be issued to an involuntary emigrant by the country of his foreign residence to serve the purpose of a passport, note be taken of the several international agreements providing for the issue of a travel document serving the purpose of a passport and of the advantage of their wide application; (f) That there should meet at London an Intergovernmental Committee consisting of such representatives as the Governments participating in the Evian Meeting may desire to designate. This Committee shall continue and develop the work of the Intergovernmental Meeting at Evian and shall be constituted and shall function in the following manner: There shall be a Chairman of this Committee and four Vice-Chairmen; there shall be a director of authority, appointed by the Intergovernmental Committee, who shall be guided by it in his actions. He shall undertake negotiations to improve the present conditions of exodus and to replace them by conditions of orderly emigration. He shall approach the Governments of the countries of refuge and settlement with a view to developing opportunities for permanent settlement. The Intergovernmental Committee, recognising the value of the work of the existing refugee services of the League of Nations and of the studies of migration made by the International Labour Office, shall co-operate fully with these organisations, and the Intergovernmental Committee at London shall consider the means by which the co-operation of the Committee and the Director with these organisations shall be established. The Intergovernmental Committee, at its forthcoming meeting at London, will consider the scale on which its expenses shall be apportioned among the participating Governments; (9) That the Intergovernmental Committee in its continued form shall hold a first meeting at London on August 3rd, 1938.' Back to the top