The Volksraad (People's Council) an advisory, and later semi-legislative institution for the Dutch East Indies, was provided for by law in 1916 but was only established with the actual installation of the Council in 1918. It was a hesitant and slow attempt at democratisation of the Dutch East Indies as part of the "ethical policy" adopted by the Dutch government. The power of the Volksraad was limited as it only had advisory powers. Although part of the council was elected only a small proportion of the population had voting rights. Initially the Volksraad had 39 members, eventually rising to 60. It was reconstituted every four years. The members were partly elected, partly appointed by the colonial administration. Background The idea of a representative body in the Dutch East Indies arose partly became of the Ethical Policy implemented by the Dutch government as part of a move away from simple exploration of the colony towards expressing concern for the Indonesian people and their wellbeing. During the World War I, the Dutch became worried about a possible Japanese threat to the East Indies. Given the small size of the local Dutch forces available for defense, the colonial authorities asked Indonesian leaders if Indonesians would be willing to be drafted into military service. The Indonesian Budi Utomo political society supported idea of a militia, but the Sarekat Islam political organization rejected this idea, refusing to fight for a colony in which they had no legislative representation. Budi Utomo came round to this view by 1915. In 1916-1917 a group comprising delegates from Budi Utomo, Sarekat Islam and the Union of Regents as well as from regions of Java travelled around the Netherlands campaigning for representation, and pleaded their case with Queen Wilhelmina. Although the Dutch refused to consider any power sharing, they realized that limited concessions might be necessary, and on 16 December 1916, following a proposal from Colonial Affairs Minister Thomas Bastiaan Pleyte, a Wet (Dutch law) was passed establishing an advisory body without any legislative powers, the Volksraad. In early 1918, the Volksraad election results were announced. Abdul Muis (Sarekat Islam) and Abdoel Rivai (Insulinde) were elected, but most of the other elected Indonesia members were government officials, not party members. Governor-General of the Dutch East Indies Johan Paul, Count van Limburg Stirum was unhappy with this outcome as he wanted more radical Indonesians in the Volksraad so they could be