The Germans were intent on setting up an autonomous administration and endeavoured to persuade Albanian leaders to form a government to take over the administration of the country themselves. Many hesitated, in particular when rumours spread that British forces were preparing to invade Albania. Kosovo Albanian leaders, however, realising that a German defeat would mean a return to Yugoslav rule, were more willing to cooperate. On 14 September 1943, an Albanian government was then set up under Cafo Beg Ulqini, Ibrahim Biçaku of Elbasan, Bedri Pejani and Xhafer Deva of Kosovo. The national assembly, composed of 243 members, began to function on 16 October 1943, electing a four-member High Regency Council (Këshilli i Lartë i Regjencës) to govern the country. The new government, which promised to remain neutral in the war, succeeded in restoring a good deal of stability. The administration and justice systems functioned once again, and Albanian schools were reopened throughout northern and central Albania. Steps were also taken to implement a land reform.