 An organizational bureau was created and this developed a system of representation on the assumption that around 500 people would attend the Congress.Representatives of all the councils of workers', peasants', and soldiers' deputies from guberniyas, counties, and cities should have participated in the Congress, including ones that were under influence of Ukrainian parties.However, the representational system gave a great advantage to delegates from the councils of the industrial regions and the big cities where Bolsheviks had the biggest influence.