Early in 1826 the Spaniards who until then had held out on the island of Chiloe, surrendered, and this signal service to the country somewhat strengthened the dictator. In July of that year a congress met, composed of men favourable to Freire, and a majority of the members were federalists, who divided Chile into eight autonomous provinces. But it soon became evident that such a system must encounter strong opposition. The provincial assemblies would pass laws at variance with the measures of the central government, and in the next moment adopt resolutions instructing their delegates in the national congress to oppose the permanent establishment of a federated republic, declaring emphatically in favour of national unity. Nevertheless, the liberals persisted in their efforts to impose on the reluctant country a brand new form of government. Doctrinaires and soldiers were still in the saddle, and only close observation of the signs of the times revealed the fact that discussion was becoming broader and the military elements in danger of losing their preponderance. By the beginning of 1827 Freire had sunk to be little more than the doubtful leader of a fraction of a party. His administration was in horrible financial straits, the expenditures were twice the income, and in May he resigned in favour of the vice-president, General Pinto. The latter was an eminent lawyer as well as a brave soldier, who held very radical views. Continuing the policy of his predecessor he summoned a congress which swept away the old Constitution and framed one that was frankly federalistic, and during 1828 and 1829 he and his party struggled to put it into application. But the sullen resistance of the aristocrats and the rivalries among the jealous liberal leaders were too much for him. Party passion became so acute and politicians so irritated and aggressive that it became impossible to carry on any regular government. In November Pinto resigned and Vicuna, president of the senate, tried his hand at holding the liberals together and suppressing the now confident and aggressive conservatives.