transitional government consisting of the Portuguese High Commissioner Rosa Coutinho and a Prime Ministerial Council would rule. The PMC consisted of three representatives, one from each Angolan party, and a rotating premiership among the representatives. Every decision required two-thirds majority support. The twelve ministries were divided equally among the Angolan parties and the Portuguese government: three ministries for each party. Author Witney Wright Schneidman criticized this provision in Engaging Africa: Washington and the Fall of Portugal's Colonial Empire for ensuring a "virtual paralysis in executive authority". The Bureau of Intelligence and Research cautioned that an excessive desire to preserve the balance of power in the agreement hurt the transitional Angolan government's ability to function. The Portuguese government's main goal in negotiations was preventing the mass emigration of white Angolans. Paradoxically, the agreement only allowed the MPLA, FNLA, and UNITA to nominate candidates to the first assembly elections, deliberately disenfranchising Bakongo, Cabindans, and whites. The Portuguese reasoned that white Angolans would have to join the separatist movements and the separatists would have to moderate their platforms to expand their political bases. The agreement called for the integration of the militant wings of the Angolan parties into a new military, the Angolan Defense Forces. The ADF would have 48,000 active personnel, made up of 24,000 Portuguese and 8,000 MPLA, FNLA, and UNITA fighters respectively. Each party maintained separate barracks and outposts. Every military decision required the unanimous consent of each party's headquarters and the joint military command. The Portuguese forces lacked equipment and commitment to the cause, while Angolan nationalists were antagonistic of each other and lacked training. The treaty, to which the Front for the Liberation of the Enclave of Cabinda (FLEC) never agreed, described Cabinda as an "integral and inalienable part of Angola". Separatists viewed the agreement as a violation of the Cabindan right to self-determination. All three parties soon had forces greater in number than the Portuguese, endangering the colonial power's ability to keep the peace. Factional fighting renewed, reaching new heights as foreign supplies of arms increased. In February the Cuban government warned the Eastern Bloc that the Alvor Agreement would not succeed. By spring the African National Congress and the South West Africa People's Organization (SWAPO) were echoing Cuba's warning. Leaders of the Organization of African Unity organized a peace conference moderated by Kenyan President Jomo Kenyatta with the three leaders in Nakuru, Kenya in June. The