It was never intended that Jordan would be part of Palestine. In September 1922, a clause in the charter governing the Mandate allowed Great Britain to postpone or permanently withhold all of the provisions which related to the "Jewish National Home" on lands which lay to the east of the Jordan River. From that point onwards, Britain administered the part west of the Jordan, 23% of the entire territory, as "Palestine", and the part east of the Jordan, 77% of the entire territory, as "Transjordan." Technically they remained one mandate but most official documents referred to them as if they were two separate mandates. Transfer of authority to an Arab government took place gradually in Transjordan, starting with the recognition of a local administration in 1923 and transfer of most administrative functions in 1928. In preparing the mandate, the Brit Foreign Office made clear "it was necessary to make room for Zionist, not that they should turn the whole country into their home."