Before the Boundary Commission began formal hearings, governments were set up for the East and the West Punjab regions. Their territories were provisionally divided by "notional division" based on simple district majorities. In both the Punjab and Bengal, the Boundary Commission consisted of two Muslim and two non-Muslim judges with Sir Cyril Radcliffe as a common chairman. The mission of the Punjab commission was worded generally as: "To demarcate the boundaries of the two parts of Punjab, based on ascertaining the contiguous majority areas of Muslims and non-Muslims. In doing so, it will take into account other factors." Each side (the Muslims and the Congress/Sikhs) presented its claim through counsel with no liberty to bargain. The judges, too, had no mandate to compromise, and on all major issues they "divided two and two, leaving Sir Cyril Radcliffe the invidious task of making the actual decisions."