 The capital of the Spanish Philippines was at that time in Iloilo.While fighting with the Americans was over, the Spanish authorities continued to fight the forces of the Philippine Revolution for control of the country outside of Manila and Manila Bay

Desiring to save the Visayas and Mindanao from being conquered by Philippine revolutionary forces, de los Rios asked Spain to grant some reforms demanded by citizens of Iloilo.He issued in Iloilo a proclamation to the people of the Visayas calling on them to establish a "Council of Reforms" to be made up of 24 leading citizens, 12 of whom would be selected by popular vote and another 12 to be appointed by the governor-general himself.