In 1937 the Royal Commission headed by Lord Peel proposed solving the Arab-Jewish conflict by partitioning Palestine into two nation-states. The concept of partition in exchange for a state was acceptable to the Jewish Agency Executive, but not the details set out by the Royal Commission. Thus in 1937-38 the Agency formulated an alternative plan for consideration by the British authorities. At the core of the proposal was the issue of borders. However, the Agency's suggestions and preparations for a Jewish state addressed additional elements, including the question of Jerusalem; population...