Cleveland sent the issue to the Congress, stating, "The Provisional Government has not assumed a republican, or other constitutional form, but has remained a mere executive council, or oligarchy, without the consent of the people". The queen changed her position on the issue of amnesty, and on December 18, Willis demanded the provisional government reinstate her to the throne, but was refused. Congress responded with a US Senate investigation that resulted in the Morgan Report on February 26, 1894. It found Stevens and all parties except the queen "not guilty", absolving them of responsibility for the overthrow. The provisional government formed the Republic of Hawaii on July 4 with Dole as its president, maintaining oligarchical control and a limited system of suffrage.