Fernando Ortiz-Sanz, the United Nations Secretary-General's representative in New Guinea, observed and approved the process of "musyawarah" during March and April 1969 for the final Act of Free Choice, although recommending that the councils be enlarged to better comply with the adult eligibility provision of the New York Agreement. In his report, he said that the majority of petitions he received from the New Guineans were pro-Indonesian, although this assessment of local opinion is contradicted by reports from foreign embassies. Between July and August 1969, the Act of Free Choice overwhelmingly concluded in favour of staying with Indonesia. Professor of International Law H.F. Van Panhuys attributes the lopsided results to the lack of demilitarization of the territory, the process of "musyawarah" ("talking until a unanimous decision is reached... not conducive to an atmosphere in which people could secretly and therefore fearlessly express their preference"), and the lack of an option for union with the Netherlands.