July 31, 1918). The Armenians, under Russian control, held a national congress in October 1917. The convention in Tiflis, with delegates from the former House of Romanov, ended in September 1917. The Muslim National Councils (MNC) passed a law to organize defense and devised a local control and administrative structure for Transcaucasia. The Council also selected a 15-member permanent executive committee, known as the Azerbaijani National Council. 1918-1921 Armenian-Azerbaijani dispute Through 1918-1919, Mountainous Karabakh was under the de facto administration of the local Armenian Karabakh Council, supported by the region's overwhelmingly Armenian population. Azerbaijan tried several times to assert authority over the region. The British governor of Baku, Lieutenant General Thomson, appointed Dr. Khosrov bey Sultanov governor-general of Karabakh and Zangezur, intending to annex Karabakh into Azerbaijan. In 1919, under threat of extermination (demonstrated by the Khaibalikend massacre), the Karabakh Council agreed under duress to provisionally recognize and submit to Azerbaijani jurisdiction until its status could be decided at the Paris Peace Conference in 1919. Independent states, May 1918 In May 1918 the Transcaucasian Republuc dissolved into separate states: Democratic Republic of Armenia Azerbaijan Democratic Republic Georgian Democratic Republic Both Armenia and Azerbaijan claimed Mountainous Karabakh and had strong rationales for doing so. Armenia regarded Mountainous Karabakh as its natural frontier, the easternmost part of the Armenian Plateau, sharply contrasted with the Azerbaijani steppes to the east, so losing Karabakh would destroy the physical unity of Armenia. Armenia also appealed to the historical ties of Karabakh to Armenia as the last stronghold of Armenian statehood and the cradle of Armenian nationalism in the modern era. Armenians constituted a majority in the mountainous parts of Karabakh. Strategically Armenia considered Karabakh a barrier between Azerbaijan and Turkey. Similarly, Azerbaijan appealed to history, as despite having had some degree of autonomy, Mountainous Karabakh had been part of the Muslim khanates of Ganja and Karabakh. Demographically Azeri constituted a majority in seven of eight uyezds of Elisabethpol guberniia and even in the heart of Mountainous Karabakh, Muslim Azeris and Kurds formed a considerable minority. Thus, carving out pockets of Christians and adding them to Armenia seemed unjust to Azerbaijan, illogical and deleterious to the welfare of all concerned. Azerbaijan did not see the steppes and mountains of Karabakh as separate, since tens of thousands of Azeri nomads circulated between them and if Highland and Lowland Karabakh were separated, these nomads would face certain ruin.