[2] Returning to the Indies in 1898, de Graaff was placed on a committee overseeing the prices paid to sugar producers by the major companies; he also joined one that investigated poverty amongst Indo–Europeans.

Such activities led to a 1905 appointment as inspector for agricultural affairs; at the same time, de Graaff served as deputy director of domestic administration under D. F. W. van Rees.

[3] Around 1905, de Graaff began developing an extensive plan to reorganize the administration of the Indies, thereby facilitating governance by allowing decisions at lower levels.

He initially sought to divide the residencies of Java into three governates, as well as use indigenous civil servants in lower levels.

[2] A revised proposal, Nota over eene hervorming van het bestuurswezen in Nederlandsch-Indië (Note on the Reform of the Administrative System in the Dutch East Indies, 1909), was released; in it, De Graaff removed mentions of extending influence to indigenous workers.

[1] Made a member of the Council of the Indies,[4] he also served as the commissioner responsible for the reorganization of the administrative services in the colony.

[2] He thus replaced Alexander Idenburg, who had resigned due to health problems,[3] the prime minister had held the position ad interim since August.

[1] De Graaff, an independent politician of Protestant faith who had conservative leanings,[1] gained a reputation for attention to detail and was nicknamed "Pietje Precies" ("Precise Pete"); every night, he would read and comment upon multitudes of documents that were delivered to his home by bicycle.