in the whole of historic Palestine, including Trans-Jordan, and that inherent in the Declaration was the possibility of the evolution of Palestine into a Jewish State. While some factions at the Congress supported the Peel Report, arguing that later the borders could be adjusted, others opposed the proposal because the Jewish State would be too small. The Congress decided to reject the specific borders recommended by the Peel Commission, but empowered its executive to negotiate a more favorable plan for a Jewish State in Palestine. In the wake of the Peel Commission the Jewish Agency set up committees to begin planning for the state. At the time, it had already created a complete administrative apparatus amounting to "a Government existing side by side with the Mandatory Government." At the same Zionist Congress, David Ben-Gurion, then chairman of the executive committee of the Jewish Agency for Palestine, told those in attendance that, though "there could be no question...of giving up any part of the Land of Israel,... it was arguable that the ultimate goal would be achieved most quickly by accepting the Peel proposals." University of Arizona professor Charles D. Smith suggests that, "Weizmann and Ben-Gurion did not feel they had to be bound by the borders proposed [by the Peel Commission]. These could be considered temporary boundaries to be expanded in the future." Ben-Gurion saw the plan as only a stage in the realisation of a larger Jewish state. The two main Jewish leaders, Chaim Weizmann and Ben-Gurion, had convinced the Zionist Congress to approve equivocally the Peel recommendations as a basis for more negotiation. Aftermath The Peel Plan proved to be the master partition plan, on which all those that followed were either based, or to which they were compared, ushering in a fundamental change in the British outlook on Palestine's future. Following the report's publication the British Government released a statement of policy, agreeing with its conclusions and proposing to seek from the League of Nations authority to proceed with a plan of partition. In March 1938, the British appointed the Woodhead Commission to "examine the Peel Commission plan in detail and to recommend an actual partition plan". The Woodhead Commission considered three different plans, one of which was based on the Peel plan. Reporting in 1938, the Commission rejected the Peel plan primarily on the grounds that it could not be implemented without a massive forced transfer