experts and study them, noting the good points in each submission, but when various options were available he would seldom be able to select the best one and abandon others. He would often rely upon the Supreme Council to prod him in a particular direction. From the beginning of his reign King Prajadhipok was acutely aware that political change was necessary if the monarchy was to be preserved. He viewed his newly established Supreme Council as an institutional check upon the powers of an absolute monarch. During 1926, Prajadhipok experimented with using the Privy Council, which had over 200 members at that time, as a quasi-legislative body. This large of an assembly proved too cumbersome, and in 1927 Prajadhipok created the Committee of the Privy Council consisting of 40 members selected from the royal family or nobility. The committee was received positively by the press and was envisaged as a forerunner of a parliament or National Assembly. In practice however the committee remained relatively unimportant and sadly did not develop into a more powerful or representative body. In 1926 Prajadhipok wrote a lengthy memorandum to his American adviser Francis B. Sayre titled "Problems of Siam" in which he set forth nine questions he felt were the most serious facing the nation. The third question asked whether Siam should have a parliamentary system, which Prajadhipok doubted. The fourth question asked whether Siam was ready for representative government, to which Prajadhipok answered "my personal opinion is an emphatic NO". However, the king did see a possibility to introduce reform at the local level as the "next step in our educational move towards democracy". In 1926 he began moves to develop the concept of prachaphiban, or "municipality", which had emerged late in the fifth reign as a law regarding public health and sanitation. Information was obtained regarding local self-government in surrounding countries, and proposals to allow certain municipalities to raise local taxes and manage their own budgets were drawn up. The fact that the public was not sufficiently educated to make the scheme work militated against the success of this administrative venture. Nevertheless, the idea of teaching the Siamese the concept of democracy through a measure of decentralisation of power in municipalities had become, in Prajadhipok's mind, fundamental to future policy-making. However, Yasukichi Yatabe, Japanese minister to Siam, criticized the king's way and that it would not be accomplished in a hundred years'