Although Pol Pot and the Khmer Rouge remained the "de facto" government, initially the formal government was the GRUNK coalition, although its nominal head, Penn Nouth, remained in Beijing. Throughout 1975, the Communist Party's control over Cambodia was kept secret. At a special National Congress meeting from 25–27 April, the Khmer Rouge agreed to make Sihanouk the nominal head of state, a status he retained throughout 1975. Sihanouk had been dividing his time between Beijing and Pyongyang but in September was allowed to return to Cambodia. Pol Pot was aware that if left abroad, Sihanouk could become a rallying point for opposition and thus was better brought into the Khmer government itself; he also hoped to take advantage of Sihanouk's stature in the Non-Aligned Movement. Once home, Sihanouk settled into his palace and was well treated. Sihanouk was allowed to travel abroad, in October addressing the UN General Assembly to promote the new Cambodian government and in November embarking on an international tour.