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."