democracy. Sukarno and the Army were to use the six years it remained in force to take measures to limit the freedom of parties and to pass laws that the parties were opposed to. Guided Democracy to the end of the party In May 1957, the Working Cabinet, which was officially non-party, passed an emergency law establishing a National Council based on functional groups. Its official purpose was to be "a reflection of society", to strengthen the position of the cabinet by associating it with Sukarno and to serve as a counterpoint to the party political system, in practice Sukarno wanted it to undermine the cabinet and parliament. Meanwhile, the regional rebellion put the PNI in a difficult position as it simultaneously supported the central government and wanted to maintain its support in the outer (non-Java) islands. When local elections were held in Java and South Sumatra in 1957, the PKI made significant gains at the expense of the PNI, which dropped from first place (in the 1955 vote) to third. During the campaign, the campaign the PKI attacked the PNI for being a "half-way group", positioned indecisively between the political left and the right. Disorganization and insubordination by regional party branches characterized the period under the chairmanship of Suwirjo, and resulted in left-wingers breaking away in July 1958 to found a new party called Partindo. At the same time, some of the PNI's mass organizations began to openly challenge the party leadership. They were supported in this by Sukarno and the Army, who both wanted to undermine the party system as part of the move towards Guided Democracy. Matters came to a head at the ninth party congress in July 1960 when these mass organizations joined forces with Sidik's radical nationalists to overturn the decentralization of party policymaking and elect Sidik ally Ali Sastroamidjojo as party chairman. In 1963, martial law, with its restrictions on party activity, was lifted. From 28 August – 1 September, the PNI held its tenth annual congress. This resulted in a move to the left, both in the composition of the leadership and in party policy. The party ideology of Marhaenism was formally defined as "Marxism adapted to Indonesian conditions". The party began to move towards a mass-based organization, in line with the philosophy of Sukarno and the PKI. However, there were sharp internal divisions between the left-wing central party organization and the right-wing