(c) crown copyright

Catalogue Reference:CAB/129/80

Image Reference:0048

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GOVERNMENT)
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SECRET
C . P . (56) 98
14th April,

COPY NO.

1/^
J^J

1956.
CABINET

BAHRAIN
M e m o r a n d u m b y t h e S e c r e t a r y of S t a t e f o r F o r e i g n

Affairs

T h i s p a p e r i s on t h e political s i t u a t i o n in B a h r a i n .
Annexed
a r e e x t r a c t s f r o m two r e c e n t d e s p a t c h e s f r o m the P o l i t i c a l Agent at
B a h r a i n , w h i c h d e a l m o r e p a r t i c u l a r l y w i t h t h e p o s i t i o n of
Sir Charles B e l g r a v e , the 3haikh's British Adviser.
2.
My c o l l e a g u e s will r e c a l l that t h e r e w a s a d e m o n s t r a t i o n in
B a h r a i n w h e n I c a l l e d t h e r e on 2nd M a r c h and that the t r o u b l e f l a r e d u p
again m o r e s e r i o u s l y nine days later.
T w o c o m p a n i e s of B r i t i s h t r o o p s
w e r e s e n t to the i s l a n d b u t did not h a v e to b e u s e d in quelling t h e d i s o r d e r s .
The situation is now quiet but is basically unstable.
3.
T h e r e s p o n s i b i l i t i e s of H e r M a j e s t y ' s G o v e r n m e n t a r e c o n f i n e d ,
b r o a d l y s p e a k i n g , to d e f e n d i n g B a h r a i n f r o m e x t e r n a l a g g r e s s i o n a n d
conducting the R u l e r ' s foreign r e l a t i o n s .
T h e a d m i n i s t r a t i o n of t h e S t a t e
a n d t h e m a i n t e n a n c e of o r d e r a r e t h e r e s p o n s i b i l i t y of t h e R u l e r a n d h i s
Government.
T h e r e a r e n o r m a l l y no B r i t i s h t r o o p s on t h e i s l a n d
though a few t e c h n i c i a n s f r o m the R o y a l Navy a n d the R o y a l A i r F o r c e a r e
s t a t i o n e d in the s m a l l N a v a l b a s e that we m a i n t a i n t h e r e and on the a i r f i e l d .
T h e S h a i k h of B a h r a i n r u l e s a u t o c r a t i c a l l y a n d , u n d e r t h e g u i d a n c e of h i s
British Adviser, Sir C h a r l e s Belgrave, he h a s a d m i n i s t e r e d his State
wisely and well,
4.
H o w e v e r , s i n c e 1 9 5 4 , a g r o u p of m i d d l e - c l a s s B a h r a i n i s w i t h
f a i r l y m o d e r a t e v i e w s , calling t h e m s e l v e s the High E x e c u t i v e C o m m i t t e e
h a v e b e e n a g i t a t i n g f o r a m o r e l i b e r a l f o r m of g o v e r n m e n t .
Their demands
a r e , o n t h e w h o l e , s e n s i b l e a n d i n c l u d e a r e f o r m of t h e R u l e r ' s C o u r t ,
m o r e r e p r e s e n t a t i o n of t h e p e o p l e i n t h e a d m i n i s t r a t i o n , a n d l a b o u r r e f o r m s .
T h e C o m m i t t e e h a v e a g o o d d e a l of p o p u l a r s u p p o r t a n d c a n b r i n g o u t
m o s t o t h e w o r k m e n o n s t r i k e .
They find it l e s s e a s y to get t h e m b a c k
again.
The r e f o r m m o v e m e n t is not d i r e c t e d against the special position
of H e r M a j e s t y ' s G o v e r n m e n t b u t f o r s o m e m o n t h s n o w h a s d e m a n d e d t h e
r e m o v a l of S i r C h a r l e s B e l g r a v e .
The latter is not a British G o v e r n m e n t
s e r v a n t but w a s a p p o i n t e d by a n d i s r e s p o n s i b l e to the R u l e r .
5.
T h e p o l i t i c a l d i f f i c u l t i e s of B a h r a i n a r e m a d e m o r e a c u t e b y
the religious conflict b e t w e e n the Sunni and Shia M u s l i m s e c t s .
They
a r e about evenly divided but the Ruling f a m i l y a r e Sunnis and the Shias
feel, with s o m e justification, that they a r e discriminated against.
6.
T h e r e i s no e v i d e n c e t h a t t h e r e f o r m m o v e m e n t i s d i r e c t l y
s p o n s o r e d b y E g y p t , b u t i n t h e p r e s e n t s t a t e of t h e M i d d l e E a s t , E g y p t i s
l o o k e d u p o n a s t h e f o u n t of p r o g r e s s i v e p o l i t i c a l i d e a s a n d t h e B a h r a i n i
leaders undoubtedly seek their inspiration there.
More recently the

(n

el

hj

Egyptian radio has been broadcasting inflammatory propaganda about

a f f a i r s in B a h r a i n b u t t h i s p r o p a g a n d a f o l l o w e d a n d d i d n o t i n s p i r e t h e
disorders.
7.
A f u r t h e r d i f f i c u l t y i s t h e w e a k n e s s of t h e B a h r a i n p o l i c e a n d
t h e d i f f i c u l t y of s t r e n g t h e n i n g t h e m .
The reformists strongly oppose
t h e i n t r o d u c t i o n of r e i n f o r c e m e n t s f r o m I r a q b u t I h o p e t h a t b y b r i n g i n g
i n s m a l l n u m b e r s of I r a q i s u n o b t r u s i v e l y a n d i n c r e a s i n g t h e n u m b e r of
B r i t i s h p o l i c e o f f i c e r s , w e s h a l l b e a b l e to b u i l d u p t h e B a h r a i n p o l i c e
to t h e p o i n t w h e r e t h e y a r e a d e q u a t e to c o n t r o l a n y o u t b r e a k s .
f

8.
T h e R u l e r s a t t i t u d e to t h e r e f o r m m o v e m e n t is f e u d a l .
He r e g a r d s even r e a s o n a b l e constitutional d e m a n d s as t a n t a m o u n t to
rebellion and he is e n c o u r a g e d in this by his family.
Sir Charles Belgrave
takes the s a m e view.
9.
T h e d i s o r d e r s which b e g a n on 11th M a r c h w e r e
an a g r e e m e n t b e t w e e n the R u l e r and the r e f o r m i s t s which
by the P o l i t i c a l A g e n t .
By this a g r e e m e n t the Ruler has
to m e e t the r e f o r m i s t s d e m a n d s b u t n a t u r a l l y he r e f u s e d
t h e d i s m i s s a l of S i r C h a r l e s B e l g r a v e .
1

quelled after
was negotiated
gone some way
to c o n s i d e r

10.
T h e r e f o r m i s t s ' a c c e p t a n c e of t h i s a g r e e m e n t i s , h o w e v e r ,
certainly only a truce and it is against this background that we m u s t
consider our future policy.
11.
I t i s te \ p t i n g t o o f f e r t h e R u l e r o u r u n q u a l i f i e d s u p p o r t , l e t
h i m a c t a g a i n s t t h e r e f o r m i s t l e a d e r s and b r i n g in the I r a q i police with,
if n e c e s s a r y , B r i t i s h a r m e d h e l p .
But I cannot r e c o m m e n d this c o u r s e .
I t w o u l d b e l i k e l y t o l e a d t o a p o p u l a r r i s i n g i n f a v o u r of r e f o r m a n d
b e f o r e long B r i t i s h t r o o p s would b e shooting down people w h o s e c l a i m s
a r e in a c c o r d with our own p r o c l a i m e d beliefs and p r a c t i c e s .
We could
maintain control only by taking over Bahrain, which is legally independent,
a s a colony and holding its people down by f o r c e .
T h e effect on o u r friends,
p a r t i c u l a r l y the A m e r i c a n s , would be deplorable, and the o p e r a t i o n would
b e a p r o p a g a n d a gift to the E g y p t i a n s a n d o u r o t h e r e n e m i e s .
12.
T h e a l t e r n a t i v e i s to adopt a m i d d l e w a y , p u s h i n g the R u l e r to
go a little f a s t e r and the r e f o r m i s t s a little m o r e slowly along t h e path
of c o n s t i t u t i o n a l a d v a n c e .
Admittedly our position in B a h r a i n depends
upon o u r individual r e l a t i o n with the R u l e r , and in allowing h i s p e r s o n a l
p o w e r t o b e w e a k e n e d , w e m a y a l s o w e a k e n o u r o w n p o s i t i o n . B u t if w e
do not act in this w a y we m a y c r e a t e g r e a t e r difficulties for o u r s e l v e s .
It s h o u l d b e p o s s i b l e f o r u s to s u p p o r t t h e R u l e r a n d m a i n t a i n h i s
c o n f i d e n c e in u s w h i l e a t the s a m e t i m e l e a d i n g h i m to a d o p t g r a d u a l
m e a s u r e s t o w a r d s c o n s t i t u t i o n a l r e f o r m i n o r d e r to c o n c i l i a t e p o p u l a r
o t o i n i o n a n d d r a w off f r o m t h e r a n k s of h i s o p p o n e n t s m e n of m o d e r a t e
views.
13.
T h e f u t u r e of S i r C h a r l e s B e l g r a v e i s o f g r e a t i m p o r t a n c e i n
all this.
He is still the focus for hostility a g a i n s t the B a h r a i n G o v e r n m e n t
and i n d i r e c t l y against H e r M a j e s t y ' s G o v e r n m e n t .
Feeling against him
is w i d e s p r e a d a n d s h a r e d by m a n y r e s p o n s i b l e c i t i z e n s in B a h r a i n .
He
h a s a l s o l o s t t h e c o n f i d e n c e of t h e m a j o r i t y of h i s B r i t i s h o f f i c i a l s a n d
i s r e g a r d e d a s a l i a b i l i t y by p e o p l e in L o n d o n w i t h i n t e r e s t s i n t h e Gulf.
The r e f o r m i s t s have obviously only t e m p o r a r i l y abandoned their efforts
to o u s t h i m a n d t h i s i s s u e i s m o r e l i k e l y t h a n a n y o t h e r t o t o u c h off
another c r i s i s in B a h r a i n .
T h r e e c o u r s e s s e e m to b e o p e n to u s :

ail tj
( a ) t o l e a v e h i m i n h i s p r e s e n t p o s i t i o n i n t h e h o p e
t h a t h e m a y g r a d u a l l y d i v e s t h i m s e l f of h i s
f u n c t i o n s a n d t h e r e b y c e a s e to b e t h e f o c u s of
criticism;
(b) t o r i s k a n o t h e r c r i s i s i n w h i c h h e w i l l b e t h e c e n t r a l
f i g u r e a n d i n w h i c h w e s h a l l e i t h e r h a v e to g e t
r i d of h i m w i t h g r e a t l o s s of p r e s t i g e , o r m a i n t a i n
h i m in office with the c e r t a i n t y t h a t the B a h r a i n i s
w i l l t h e n t u r n t h e i r b a c k s on H e r M a j e s t y ' s
Government;
or

( c ) t o c h o o s e o u r o w n tim.e f o r h i s r e t i r e m e n t a n d

t a k e i m m e d i a t e m e a s u r e s to e n s u r e the r e t e n t i o n

of a n E n g l i s h m a n i n a k e y p o s i t i o n w i t h t h e R u l e r

a n d t h e G o v e r n m e n t of B a h r a i n .

I rio not b e l i e v e that, ( a ) i s p r a c t i c a b l e , i.. e . t h a t i t w i l l n o t i n p r a c t i s e

become m e r g e d w i t h ( b ) . (b) m e a n s a t b e s t s t r i k e s , t h e i n t e r r u p t i o n of
t h e f l o w of o i l a n d t h e h u m i l i a t i n g s p e c t a c l e of a l l t h e R u l e r ' s p o l i c e a n d
a l l H e r M a j e s t y s G o v e r n m e n t s a r m e d f o r c e s failing to f o r c e oil w o r k e r s
to w o r k .
,

14.
I t h e r e f o r e favour c o u r s e (c).
S u b j e c t t o t h e v i e w s of m y
c o l l e a g u e s I p r o p o s e , a s soon a s it c a n c o n v e n i e n t l y b e d o n e , to s e e k to
i n t r o d u c e a B r i t i s h official as a n a s s i s t a n t to S i r C h a r l e s B e l g r a v e .
The
understanding would be that Sir C h a r l e s B e l g r a v e would leave as soon as
t h e a s s i s t a n t h a d w o r k e d h i m s e l f i n , s u b j e c t of c o u r s e t o c o n d i t i o n s b e i n g
s u c h t h a t h i s d e p a r t u r e c o u l d t a k e p l a c e w i t h o u t u n d u e l o s s of p r e s t i g e
to h i m o r to u s .
T h i s c o u r s e s e e m s to m e to b e the m o r e i n d i c a t e d i n
that both the R u l e r and Sir C h a r l e s B e l g r a v e a r e over 60.
It would b e
d e s i r a b l e i n a n y c a s e to h a v e a n e w m a n i n s t a l l e d b e f o r e a n e w R u l e r s u c c e e d s .
15.
F i n a l l y , I t h i n k t h a t o u r g e n e r a l l i n e s h o u l d b e not to b e too
a f r a i d of i n t e r v e n i n g w i t h a d v i c e i n i n t e r n a l a f f a i r s ( t h o u g h o u r t r e a t i e s
g i v e u s no r i g h t to do so) a n d to s e e k , w i t h o u t a n t a g o n i s i n g t h e R u l e r , to
g a i n a n d k e e p t h e s y m p a t h y of m o d e r a t e r e f o r m i s t s i n B a h r a i n .

S..B.

F o r e i g n Office,

S.W.I.,

13th F e b r u a r y ,

1956.

ANNEX
E x t r a c t f r o m d e s p a t c h N o . 4 of 2 0 t h M a r c h ,
f r o m P o l i t i c a l Agent, B a h r a i n , to P o l i t i c a l
R e s i d e n t , P e r s i a n Gulf

1956,

T h e A d v i s e r h a s t h e r e f o r e , in o r d e r to g e t t h i n g s d o n e ,
a c q u i r e d t h e h a b i t of e x e r c i s i n g m o r e e x e c u t i v e a u t h o r i t y t h a n h e s h o u l d
h a v e d o n e a n d a t the s a m e t i m e t h e R u l e r h a s t e n d e d to s h e l t e r b e h i n d h i s
A d v i s e r w h e n u n p l e a s a n t d e c i s i o n s h a d to b e t a k e n - m a k i n g h i s e x c u s e
a l w a y s t h a t the A d v i s e r h a d wanted it this o r t h a t way.
This in t u r n h a s
b r o u g h t the A d v i s e r the r e p u t a t i o n a m o n g the B a h r a i n i s for being the r e a l

r u l e r of B a h r a i n .
M o r e o v e r , in r e c e n t y e a r s the A d v i s e r h a s found it
m o r e a n d m o r e d i f f i c u l t , b e c u a s e of t h e i n c r e a s i n g w o r k of t h e G o v e r n m e n t
to k e e p u p with h i s w o r k a n d t h i n g s h a v e m o r e a n d m o r e f a l l e n i n t o a r r e a r .
The o r d i n a r y routine dealings which this Agency has with him all take a
quite e x c e s s i v e l y long t i m e to a c h i e v e a r e s u l t .
It i s n o t t h e r e f o r e
s u r p r i s i n g that the B e l g r a v e S y s t e m should have a r o u s e d opposition
a m o n g t h e p e o p l e who f e e l that nothing e v e r g e t s done a n d w h e n it i s done
i t is a s often a s not done in the w r o n g w a y .
Here the Ruler is as m u c h
a t f a u l t a s the A d v i s e r f o r h e f a i l s c o m p l e t e l y to c a r r y h i s f a m i l y w i t h
h i m b y t e l l i n g t h e m w h a t i s going on a n d w h a t h i s p l a n s a r e , w i t h o u t
necessarily agreeing with their views.
T h e y r e g a r d the R u l e r as too
a u t o c r a t i c a s the people do the A d v i s e r . Both the R u l e r and his A d v i s e r
b e c a u s e of t h e i r . a u t o c r a t i c o u t l o o k c o m p l e t e l y f a i l to a p p r e c i a t e t h e
n e e d f o r a n d t h e i d e a of p u b l i c r e l a t i o n s .
It i s t r u e t h a t l a s t s u m m e r
a Public Relations D e p a r t m e n t was s e t up with the A d v i s e r ' s son,
M r . J a m e s B e l g r a v e , i n c h a r g e of i t b u t t h e l a t t e r ' s a c t i v i t i e s h a v e s o
f a r c o n s i s t e d o n l y i n a c t i n g a s g e n e r a l f a c t o t o m to h i s f a t h e r , i n l o o k i n g
a f t e r v i s i t o r s , f o r e i g n j o u r n a l i s t s and in running - not v e r y w e l l - t h e
G o v e r n m e n f s broadcasting station.
H e h a s l i t t l e c o m p r e h e n s i o n of t h e
n e e d t o e x p l a i n w h a t t h e G o v e r n m e n t i s d o i n g t o t h e p e o p l e of B a h r a i n ,
and i s c e r t a i n l y not e n c o u r a g e d in t h i s by his f a t h e r .

E x t r a c t f r o m d e s p a t c h N o . 5 of 2 2 n d M a r c h , .
1 9 5 6 , f r o m P o l i t i c a l A g e n c y , B a h r a i n , to
P o l i t i c a l R e s i d e n t , P e r s i a n Gulf.
t h a v e a l r e a d y i n m y d e s p a t c h N o , 4 of 2 0 t h M a r c h s p o k e n of
t h e f r u s t r a t i o n f e l t b y t h e p e o p l e of B a h r a i n a t t h e a p p a r e n t l a c k of u n d e r
s t a n d i n g of t h e i r n e e d s a n d w i s h e s o n t h e p a r t of t h e R u l e r a n d
Sir C h a r l e s Belgrave,
This frustration has largely stimulated the demand
for the l a t t e r ' s r e m o v a l .
I t i s q u i t e t r u e to s a y t h a t t h e G o v e r n m e n t of
B a h r a i n i s i n e p t , l a c k s f e e l i n g a n d i s s l o w of m o v e m e n t .
The Ruler has
n e v e r a t a n y t i m e b e e n c o m p e l l e d to s t a n d o n h i s o w n f e e t b e c a u s e t h e
Adviser h a s always been h e r e and the Adviser has n e v e r been compelled
to a d a p t h i m s e l f to c h a n g i n g c o n d i t i o n s a n d m o v e w i t h t h e t i m e s b e c a u s e
he has always had the Ruler behind h i m .
The two a r e the s a m e a g e and
h a v e a c q u i r e d t h e s a m e h a b i t o v e r t h e y e a r s of o n l y s e e i n g w h a t t h e y w a n t
to s e e .
As r e g a r d s o u r policy in B a h r a i n I think w e have r e a c h e d a .
turning point.
I t i s n o l o n g e r a q u e s t i o n of w h e t h e r w e d o o r d o n o t
s u p p o r t the A d v i s e r , S i r C h a r l e s B e l g r a v e , b e c a u s e he is B r i t i s h and
a f t e r t h e Glubb e p i s o d e i n J o r d a n w e do n o t w a n t to s e e a n o t h e r k e y
British figure ejected.
It i s a q u e s t i o n of w h e t h e r w e c a n h o n e s t l y s a y
t h a t w e s t i l l c o n s i d e r Sir C h a r l e s B e l g r a v e to b e the r i g h t m a n in the
r i g h t place given the advance in political c o n s c i o u s n e s s , not only in
B a h r a i n b u t in the w h o l e M i d d l e E a s t and w h e t h e r w e should not b e w i s e r ,
f r o m t h e p o i n t of v i e w of o u r l o n g t e r m p o l i c y , t o s e t a n e w c o u r s e
e n t i r e l y w h i c h w o u l d i n e v i t a b l y e n t a i l d i s p e n s i n g with h i s s e r v i c e s a n d
c r e a t i n g s o m e n e w p o s t o r p o s t s , if p o s s i b l e h e l d b y a B r i t i s h o f f i c i a l
o r officials to r e p l a c e h i m .
T h i s is the l o g i c a l c o u r s e but we s h a l l h a v e
t o c o n s i d e r t h e e f f e c t of s u c h a r a d i c a l c h a n g e o n t h e R u l e r w h o i s n e i t h e r
intelligent nor adaptable and is stubborn into the b a r g a i n .
He is a l s o
v e r y a t t a c h e d to S i r C h a r l e s B e l g r a v e w h o m w e h a s k n o w n a n d w i t h w h o m
h e h a s w o r k e d c l o s e l y for thirty y e a r s - in effect a lifetime and is v e r y
l o y a l to h i m .
W h e n i n 1 9 4 8 y o u r p r e d e c e s s o r b r o a c h e d t h e s u b j e c t of t h e
A d v i s e r ' s r e t i r e m e n t the R u l e r ' s r e a c t i o n was such that the m a t t e r w a s
dropped,
I think it m i g h t even b e s t r o n g e r now.
T h e r e is also the
q u e s t i o n of t h e A d v i s e r s o w n a t t i t u d e .
H e m a y n o t go w i l l i n g l y t h o u g h
i t i s p o s s i b l e t h a t h e w i l l r e a l i s e t h e u s e l e s s n e s s of t r y i n g t o g o a g a i n s t
the c u r r e n t .
A s i s s o o f t e n t h e c a s e , w e a r e o n t h e h o r n s of a d i l e m m a .
f

&\3 zD

S i r C h a r l e s B e l g r a v e , h o w e v e r m u c h w e m a y l i k e 3iim p e r s o n a l l y , i s
now an a n a c h r o n i s m .
His continued p r e s e n c e will build up p o p u l a r
feeling against u s .
T h e m a i n t e n a n c e of o u r p o s i t i o n h e r e a n d i n t h e G u l f
t h e r e f o r e d e m a n d s a c h a n g e , p a r t i c u l a r l y if w e a r e t o s e e k t o g u i d e
events and not be d r a g g e d along by t h e m .
The Ruler, however, will
c e r t a i n l y take any such s u g g e s t i o n s v e r y ill and the B r i t i s h p o s i t i o n in
B a h r a i n depends upon o u r a g r e e m e n t s with h i m and his p r e d e c e s s o r s .