A commission of inquiry established by the French Senate in 1892 and headed by former Premier Jules Ferry, an advocate of colonial expansion, recommended that the government abandon a policy that assumed French law, without major modifications, could fit the needs of an area inhabited by close to two million Europeans and four million Muslims. Muslims had no representation in the French National Assembly before 1945 and were grossly under-represented on local councils. Because of the many restrictions imposed by the authorities, by 1915 only 50,000 Muslims were eligible to vote in elections in the civil communes. Attempts to implement even the most modest reforms were blocked or delayed by the local administration in Algeria, dominated by , and by the 27 representatives in the National Assembly (six deputies and three senators from each department).