The number of provinces remained static until September 1988 when, in accordance with the Indo-Lanka Accord, President Jayewardene issued proclamations enabling the Northern and Eastern provinces to be one administrative unit administered by one elected Council, creating the North Eastern Province.[12] The proclamations were only meant to be a temporary measure until a referendum was held in the Eastern Province on a permanent merger between the two provinces. However, the referendum was never held and successive Sri Lankan presidents issued proclamations annually extending the life of the "temporary" entity.[13] The merger was bitterly opposed by Sri Lankan nationalists.