From 2002 to 2010, the system as defined by the constitution of 1992 functioned in a relatively normal way. The executive branch of the government was composed of the President, the Prime Minister and Council of Ministers. The Council of Ministers, composed of all ministers and vice ministers, met regularly to discuss policy issues. Governors of the 18 provinces were appointed by and served at the pleasure of the president. The Constitutional Law of 1992 established the broad outlines of government structure and the rights and duties of citizens. The legal system was based on Portuguese and customary law but was weak and fragmented. Courts operated in only 12 of more than 140 municipalities. A Supreme Court served as the appellate tribunal; a Constitutional Court with powers of judicial review was never constituted despite statutory authorization. In practice, power was more and more concentrated in the hands of the President who, supported by an ever-increasing staff, largely controlled parliament, government, and the judiciary.