The Constitution of 2010 establishes the broad outlines of government structure and delineates the rights and duties of citizens. The legal system is based on Portuguese law and customary law but is weak and fragmented, and courts operate in only 12 of more than 140 municipalities. A Supreme Court serves as the appellate tribunal; a Constitutional Court does not hold the powers of judicial review. Governors of the 18 provinces are appointed by the president. After the end of the civil war, the regime came under pressure from within as well as from the international community to become more democratic and less authoritarian. Its reaction was to implement a number of changes without substantially changing its character.