As a parallel political movement under the German military administration,
Baltic Germans began forming provincial councils between September 1917 and March 1918.
On 8 March 1918, the local Baltic German-dominated
Kurländischer Landesrat declared the restoration of
Duchy of Courland (
Herzogtum Kurland), which was formally recognised by
Kaiser Wilhelm on 15 March 1918.
On 12 April 1918, a Provincial Assembly (
Vereinigter Landesrat), composed of 35 Baltic Germans, 13 Estonians, and 11 Latvians, passed a resolution calling upon the German Emperor to recognise the Baltic provinces as a monarchy and to make them a German protectorate.
[7]
The United Baltic Duchy was nominally recognised as a sovereign state by Wilhelm II only on 22 September 1918,[
citation needed] half a year after
Soviet Russia had formally relinquished all authority over former
Russian Imperial Baltic governorates to Germany in the
Treaty of Brest-Litovsk. On 5 November 1918, a temporary Regency Council (
Regentschaftsrat) for the new state, led by Baron
Adolf Pilar von Pilchau, was formed on a joint basis from both local Land Councils.
The new state was to have its capital in
Riga and was to be a confederation of seven
cantons:
Kurland (
Courland), Riga,
Lettgallen (
Latgale),
Südlivland (South
Livonia),
Nordlivland (North Livonia),
Ösel (
Saaremaa) and
Estland (Estonia), the first four cantons correspondings to today's Latvia and the last three corresponding to today's Estonia.
The first head of state of the United Baltic Duchy was to be
Duke Adolf Friedrich of Mecklenburg, not as a sovereign monarch, but as a subordinate to the German
Kaiser, similar to other
princes or kings of the German Empire. However, Adolf Friedrich never assumed office. The appointed Regency Council, consisting of four Baltic Germans, three Estonians and three Latvians, functioned until 28 November 1918 without any international recognition except from Germany.
In October 1918, the
Chancellor of Germany,
Prince Maximilian of Baden, proposed to have the military administration in the Baltic replaced by civilian authority. The new policy was stated in a telegram from the
German Foreign Office to the military administration of the Baltic: "The government of the Reich is unanimous in respect of the fundamental change in our policy towards the
Baltic countries, namely that in the first instance policy is to be made with the Baltic peoples".
[5]