Upon taking office as the first British High Commissioner for Palestine, Sir Herbert Samuel announced that the region would have its own special administration. The unique status which the British granted to Mandatory Palestine was an indication of its importance in their eyes. Known to its Hebrew-speaking Jewish residents as Eretz Yisrael – the Land of Israel – Mandatory Palestine was established as an autonomous administrative unit with its own currency (displaying the names of the land in Arabic, English and Hebrew), and for the first time since the days of King David, Jerusalem was declared its capital.
But the Jerusalem the British encountered in 1917 was far from worthy of such lofty status. Sewage flowed in the streets. Dirt, filth, and disease were everywhere to be found. Roads were in disrepair, there was no electricity, and the First World War had led to serious shortages and even famine.
The first step was to bring order to the system. The High Commissioner announced that a general land survey and registration would soon begin. Steps would be taken to ensure that the new neighborhoods to be built would be constructed according to appropriate plans.
A Stone-Carved Mountain
No fewer than five comprehensive city plans came across the desk of the Military Governor of Jerusalem over thirty years of British rule, outlining how the city would look in the years to come. These plans navigated the complexities of both preserving the Old City and developing the new city towards the west, while also mapping out new roads, neighborhoods, gardens, and commercial areas.
Of the five plans, the most impactful was that of architect Henry Kendall, which was submitted in 1944. Kendall studied architecture at the University of London and came to Mandatory Palestine in 1936. He was appointed the High Commissioner’s advisor on urban planning, he was the chief architect for the Mandatory public works department, and he was also the city engineer of Jerusalem. His plans for Jerusalem were detailed and differentiated between residential, commercial, industrial, and other uses. Kendall mapped out the network of streets and town squares, planning for six categories of building density and height, depending on proximity to the Old City. His plan was for neighborhoods to be built on mountain ridges, separated by valleys that would remain free of buildings and contain public gardens. He also added industrial zones to the city. Kendall’s plan implemented the customary British practice of preserving the Old City and separating it from the new city. It defined the building materials and architectural style to be used, which aligned with the British perception of Jerusalem. For example, the use of corrugated iron, asbestos, wood, and essentially any material other than stone was prohibited; the architectural style in the new city also featured arches and paid meticulous attention to the skyline.
Kendall’s impact on the city’s appearance and character was the most lasting and significant among those that preceded him. Many of the principles he set continue to affect the city, its residents, and its appearance to this day.
Henry Kendall could have sat in his office for many more years, continuing to plan the city, if history did not have its own plans for Jerusalem – and for Kendall himself. Four years after he submitted his plans for the city, the map of Jerusalem changed drastically.
Jordanian Jerusalem – Israeli Jerusalem
The UN Partition Plan of 1947, which stipulated that Jerusalem would be a demilitarized city under international control, was not welcomed by any of the sides involved in the fierce battle over control of Jerusalem during Israel’s War of Independence. As a result, it was the developments on the battlefield, rather than mapmakers sitting in their offices, that decided what the city would look like. In the armistice agreements, Jerusalem was divided between the Jordanians and the Israelis, and each side rushed to assert sovereignty over its part. How? Through planning, of course.
While the Israeli Jerusalem municipality hired architects to draw up a new urban plan for West Jerusalem, the Jordanians turned to none other than our old friend Henry Kendall.
Kendall’s 1944 plans continued to serve as a guideline for the Jordanians in Jordanian East Jerusalem, and after a fair amount of work that included making adjustments to account for the new geopolitical reality, Kendall submitted an improved plan for Jerusalem: “Jerusalem (Jordan) and Region Planning Proposals”.
Kendall envisioned Jordanian Jerusalem as a spacious city, combining residential areas, commercial zones, roads, and open spaces. In practice, however, the Jordanian government’s complicated relationship with the Arab residents of Jerusalem led to a far less developed city. Despite all of his hard work, only a few years after Kendall submitted the plan, history struck yet again, and all of his meticulously prepared blueprints had to be shelved in the archive.
“My City has Changed Her Face”
The Six-Day War brought about a drastic change in the city’s appearance, size, character, and planning principles. For the first time, Israel assumed planning authority over the Old City, without neglecting the new city.
Senior teams of planners and architects began preparing the master plan for (Western) Jerusalem in the early 1960s. Israel (Lulik) Kimhi, a veteran researcher and one of the pillars of the Jerusalem Institute for Policy Research, describes how, for the umpteenth time in Jerusalem’s history, the city laughed in the faces of those who prepared such intricate plans for her: “The office [=Office of the Master Plan for Jerusalem] began following a detailed work plan and was about to finish its work on the eve of the city’s reunification. However, due to the sudden change in Jerusalem’s situation following the Six-Day War, [Mayor] Teddy Kollek asked the team to continue working, and so we, the members of the master plan team, were tasked with preparing the first plan for a reunified city.”
In the decades that followed the Six-Day War, Jerusalem entered a period of planning and construction unlike any before. Areas that had previously been neglected now received plans and development programs; old neighborhoods saw renovations and expansion; massive new neighborhoods were built and parks were developed, and highways were constructed to connect the newly unified parts of the city.
In addition to building new neighborhoods within Jerusalem – Ramot, Gilo, Pisgat Ze’ev, and others – a decision was made in the 1980s to expand the broader urban territory by establishing cities and towns around Jerusalem. Thus, Ma’ale Adumim, Efrat, Givat Ze’ev, and other communities were founded, marking the beginning of the era of “Greater Jerusalem,” with the city functioning as a metropolitan area serving a large region of Jewish and Arab communities surrounding it.
Jerusalem 2000
How was the eternal city to prepare for a new millennium? With plans, how else? As early as 1985, work began on the ultimate urban plan for Israel’s capital city – the Jerusalem 2000 Master Plan. Lulik described it as follows: “The plan included population and construction forecasts, economic and demographic analysis, preservation zones, transportation systems, new areas for construction, landscape considerations, open spaces, and more. The plan had a comprehensive, systemic vision and was supposed to guide the city’s development… until the year 2020.”
But as we have already learned, the city of Jerusalem has a life of its own. Security issues, demographic changes, political processes, various economic pressures and the realities of life itself have reshaped the city’s appearance. To this day, the Jerusalem 2000 plan has not been formally approved by the Israeli Ministry of the Interior, but it still serves as a guiding document for the local planning committee in Jerusalem.
For their part, planning committees and city planners are still attempting to design Jerusalem’s urban landscape, trying to reshape the image of this vibrant and chaotic ancient city. These efforts are likely to continue until the next historical turn of events that will force the planners to shelve their maps and blueprints in the archive of the Jerusalem Institute for Policy Research – and begin rethinking everything, once again.
The items appearing in this article are preserved in the archive of the Jerusalem Institute for Policy Research and are digitally accessible as part of the Archive Network Israel project, made possible thanks to the collaborative efforts of the archive, the Ministry of Heritage, and the National Library of Israel.