The governing power of the MOI that penetrated and pervaded through the Sanitary Areas, and, to a lesser extent, through municipalities throughout the country was not unified and was difficult to consolidate. As such, there was a need on the part of the MOI to create an administrative arm, the likes of which would allow the MOI indirect control over all so-called local governing units in the country. Legally speaking, it was not expedient to devise a direct control mechanism since it would appear to be contravening the royal wish of King Rama VII, who wanted to see that the power granted by him went down to the people.