Romania occupied all of Hungary with the exception of an area around Lake Balaton. There, Adm. Miklós Horthy formed a militia with arms from Romania.:p. 612 Horthy was preparing to be Hungary's new leader at the end of the Romanian occupation. His supporters included some far-right nationalists. Horthy's supporters also included members of the White Guards, who had persecuted Bolsheviks and Hungarian Jews, whom they perceived as a communist group given their disproportionate participation in Kun's government.:p. 616:p. 80-86 and 120. Horthy's nationalists and Romanian troops took steps to protect Hungary's Jewish people. The Romanian occupying force also took punitive actions against any revolutionary elements in areas under its control. Initially, Romanian troops provided policing and administrative services in occupied Hungary. Later, under pressure from the Allied council, these roles were returned to the Hungarians.:p. 52However, in Budapest, only 600 carbines were provided to arm 3,700 policemen.. When was Horthy preparing to rule Hungary?