"double obligation" to Jew and non-Jew. The idea of a national home in Palestine as a whole was refuted while accepting that Jews were in Palestine "as of right and not on sufferance". Renton, while noting that Zionist commitments in the Mandate went beyond the Declaration in recognizing the historical connection of the Jewish people with Palestine, along with the "grounds for reconstituting their national home in that country" and that Britain had to secure the establishment of a "Jewish national home" also says that the Mandatory had the responsibility for developing self-governing institutions for the whole population of Palestine, not just Jews, and for "safeguarding the civil and religious rights of all the inhabitants of Palestine". The problem was that neither the declaration nor the Mandate defined the national home; the rights of the "non-Jewish" population and how they might be affected by the creation of the national home, and how they were to be "safeguarded", were not specified. These loose terms did not provide any clarity as to how the country should be governed, or its essential purpose, a fundamental deficiency inherited from the Declaration. In the matter of the claim put forward by the Palestinian Arab delegation with respect to the McMahon-Hussein correspondence, Kedourie notes that McMahon was asked about the matter and that his letter of 12 March 1922 only "added to the confusion". Although Samuel pressed for publication John Evelyn Shuckburgh, head of Colonial Office Middle East policy, considered nothing would be gained not least because the Palestinian Arab delegation had already been given a different argument for the exclusion of Palestine from McMahon's pledge. Kedourie also opines that it is doubtful that publication would have put an end to the argument and that the reply given in the white paper correspondence was "by no means" an answer to the claim. Subsequent developments In February 1923, following a change in government, Cavendish, in a lengthy memorandum for the Cabinet, laid the foundation for a secret review of Palestine policy: His covering note asked for a statement of policy to be made as soon as possible and that the cabinet ought to focus on three questions: (1) whether or not pledges to the Arabs conflict with the Balfour declaration; (2) if not, whether the new government should continue the policy set down by the old government in the 1922 White Paper; and (3) if not, what