James G. Douglas, chair of the constitution drafting committee, proposed extern ministers on the model of the Swiss Federal Council. Leo Kohn suggested a precursor was the "Directors" created outside the 1919 Dáil Cabinet by the First Dáil, but Nicholas Mansergh disagreed and Brian Farrell felt the 1919 model was UK junior ministers (parliamentary secretaries). The idea of extern ministers was first mooted as a way of placating republicans opposed to the 1921 Anglo-Irish Treaty on which the Free State was founded. It would have allowed republicans to hold ministries in a national unity government without their having to take the Oath of Allegiance which the Treaty required of members the Oireachtas (parliament). The draft constitution provided for an Executive Council of twelve, of whom four, including the President and Vice President, must be members of the Dáil; of the other eight, at most three might be members of the Dáil or Seanad (upper house). However, British government objections meant the proposal was altered, and extern ministers were required to take the Oath and, though nominated by the Dáil, were appointed by the Governor General. These monarchist changes were unacceptable to republicans.