 According to a report by Foreign Office delegate of the 12th Army, Felix Benzler, the formation of a puppet government wasn't an easy task "because it is very difficult to persuade qualified civilians to participate in any form".The most influential Greek personalities hardly wished to make their re-entry into public life at such a moment, while archbishop Chrysanthos of Athens refused to swear such an Axis puppet.Suspicious of the Greeks' capacity for causing problems, the Axis decided to withhold international recognition from the new regime, which remained without a Foreign Minister for its entire lifetime.