Further "Judenräte" were established on 18 November 1939, upon the orders of Hans Frank, head of the "Generalgouvernment". These councils were to have 12 members for Jewish communities of 10,000 or fewer, and up to 24 members for larger Jewish communities. Jewish communities were to elect their own councils, and by the end of 1939 were to have selected an executive and assistant executive as well. Results were to be presented to the German city or county controlling officer for recognition. While theoretically democratic, in reality the councils were often determined by the occupiers. While the German occupiers only minimally involved themselves in the voting, those whom the Germans first chose often refused participation to avoid becoming exploited by the occupiers. As a rule, therefore, the traditional speaker of the community was named and elected, preserving the community continuity.