Despite this growing popular support for independence, Congress lacked the clear authority to declare it. Delegates had been elected to Congress by 13 different governments, which included extralegal conventions, ad hoc committees, and elected assemblies, and they were bound by the instructions given to them. Regardless of their personal opinions, delegates could not vote to declare independence unless their instructions permitted such an action. Several colonies, in fact, expressly prohibited their delegates from taking any steps toward separation from Great Britain, while other delegations had instructions that were ambiguous on the issue; consequently, advocates of independence sought to have the Congressional instructions revised. For Congress to declare independence, a majority of delegations would need authorization to vote for it, and at least one colonial government would need to specifically instruct its delegation to propose a declaration of independence in Congress. Between April and July 1776, a "complex political war" was waged to bring this about.