In 1937 The Peel Commission published its report into the disturbances of the year before. For the first time, partition and the setting up of a Jewish State was recommended. The 1937 Zionist Congress rejected the Commission's conclusions, a majority insisting that the Balfour Declaration referred to all of Palestine and Transjordan, but the executive was authorized to continue exploring what the "precise terms" were. This decision revealed differences within the Jewish Agency, with the non-Zionists disagreeing with the decision and some calling for a conference of Jews and Arabs.