For Jews in Europe who wanted territory for a Jewish state, the range of possible strategies was limited. They had no army to take territory. They focused on the states that controlled territory that might potentially serve the purpose. They hoped to convince some sovereign to cede territory. Theodor Herzl, a Viennese journalist, developed contacts with various governments and traveled widely in pursuing this endeavor. “I cling to the hope,” Herzl wrote to the Grand Duke of Baden in 1896, “that the truly high-minded sovereigns of Europe will bestow their gracious protection on the cause.”

To have any chance of success, Herzl needed to provide some quid pro quo, or at least a potential quid pro quo. Giving territory for a Jewish state had to be in the interest of a sovereign.

Herzl explored a number of possible sites but early on focused on Palestine, then part of the sprawling Turkish empire in the Middle East. He approached Turkish officials, offering to buy Palestine. Herzl did not have ready access to the funds that would be necessary, but he hoped to raise cash from wealthy Jews in Europe. Herzl did have some leverage. Turkey was in dire straits, its economy faltering, hence the term “sick man of Europe” that came to be commonly applied. Turkey was heavily in debt to European countries, which had set up a debt administration system to manage repayment by Turkey. Herzl's idea was to pay off the debt. He planned, as he explained it, “to liberate Turkey from the Debt Control Commission.” This desperate situation opened the possibility that Sultan Abd al-Hamid might be receptive to the financial assistance Herzl was dangling.

Herzl's offer was attractive. It got the attention of Turkish officialdom. “The benefits in money and press support which you promise us are very great,” one Turkish official told Herzl. As discussions continued, Herzl came to realize that Turkish officials were not prepared actually to allow the carving out of territory for a Jewish state, so he modified his terminology with them. Even though Herzl did seek an actual state, he stopped calling what he wanted an “independent Jewish state” and instead told them he wanted an “autonomous vassal state” that would be “under the suzerainty of the Sultan.”

Herzl tried one other tack with the Sultan. Herzl suggested that Jews would help prevent an Arab uprising against the Empire.