In 1997, former United States Secretary of State, James Baker, was appointed as a UN envoy by new UN Secretary General, Kofi Annan. The initial peace talks left many people in the area hopeful. First Baker reviewed the prior proposals and consulted with all parties involved. He, along with Chester A. Crocker and John R. Bolton, conducted private talks with Polisario and Morocco along with Algeria and Mauritania acting as observers. Eventually, the talks, which covered the "issues of refugees, reduction of Moroccan troops, prisoners of war and political prisoners," along with an agreement on a code of conduct for the voter registration, eventually led to the Houston Agreement. Voter identification began again on December 3, 1997. A referendum was meant to occur by 1998. However, due to Morocco's refusal to accept the census results, and thus unlikelihood of accepting referendum based on the voters proposed, the UN Secretary General suspended the Settlement Plan.