The core is a co-management pair: the City convenes, staffs and executes, and the council of 92 elected councillors (46 titular, 46 substitutes, two of each per region and theme) plus a UAMPA seat decides on the rules, the distribution and the plan; the City's two representatives on the council speak but do not vote. The council grew from 32 titular members for 16 regions in 1992 to 44 with the thematic plenaries and the municipal workers' union SIMPA in the late 1990s, to 46 elected plus UAMPA once Ilhas became the seventeenth region; SIMPA's seat was gone by 2016. Below the council sit the forums of delegates, one delegate per ten assembly participants (614 delegates in 1992, about 2,000 a year by 2003), which rank the demands and follow the works. The convening office has moved: GAPLAN and the community-relations office CRC in the mayor's cabinet in the 1990s, the governance department (Secretaria de Governança) Local from 2005 (the office of the Governança Solidária Local programme that the Fogaça administration ran alongside the OP with UNESCO support), with regional administrative centres (CARs) and then, from 2017, sub-prefectures in each of the 17 regions. The council of aldermen approves the budget law; in the 1990s it never altered the OP's budget despite having no Workers' Party majority, and after 2005 it reasserted itself as the executive's partner. Multilateral lenders matter twice: the World Bank evaluated the OP in 2008 and World Bank, IDB and CAF loans financed OP works, the CAF loan paying for the 2016 cycle. Cidade, an NGO, ran the early surveys and a watchdog bulletin. Only the Lei Orgânica reference, the annual rulebook and the budget law bind anyone; commitments are formal but not contractual, which is why the 2017 suspension was possible.