Chapter 17: The Founding of the Federation
The Federation of American Peoples has been called, at various times, "the most ambitious project in human history", "a historical inevitability", "a Quixotic venture", "the greatest triumph of the Native American", "the noblest of political visions", "a useful fiction", "a well-intentioned mistake", and "an act of sheer hubris".
Certainly, it was an ambitious project. There were visionaries from the early days after the translocation, once the full situation was understood, who envisioned a single nation straddling the continent, uniting all tribes and nations under its banner. Memories of the old United States of America, whether good or bad, must have been fresh in the minds of many.
Some Native Americans, to say nothing of the majority of non-Natives, believed in the values of the USA, as witnessed by the influential American Patriot Movement, which openly called for a reunification of the United States. The American Patriot Movement was strongest on reservations where White Americans formed a majority. Most of these nations eventually adopted fictions of being continuations of tribal governments, though they did enshrine protections for their Native American citizens, both old and new.
This is where the historical narrative that the Federation was a "useful fiction" stems from. Some historians believe the Federation was, in fact, a continuation of the United States. However, we must acknowledge that of the founding states of the Federation, only one, the Osage Nation, was majority white at the time. Still, the founders of the Federation believed it to be a project for all people inhabiting the continent.
However, these was no guarantee that the Federation was destined to happen. While cooperation and friendship existed between most early states post-transition, there was also war, hostility, and distrust, and even in the First Contact Period many nations had shown themselves willing to look out for their own interests first. There have been compelling alternative outcomes suggested by historians – of a continent dominated by multiple regional alliances, some politically integrated and some not, sometimes friendly, often rivals, and occasionally hostile. Among the wealth of speculative fiction on such matters, usually written as political allegories, there are even more possibilities. Certainly, even the Federation did not manage to prevent wars or rivalries between its member states entirely.
Still, those regional alliances were certainly present in the First Contact Period, and would have remained even if the Federation had not been founded. The New Tacoma Agreement, the Great Plains Community, the Union of Southwest Tribes and its satellite states, the city leagues of the Southeast formed as a result of external pressure, and the large nation-states of the Great Lakes and Northeast – all of these were viable precursors to regional powers.
However, there were demands for a multinational organization that brought together all of these powers that went beyond the ideological. Commerce, access to modern technology, exposure to disease, and political stability had not been evenly distributed across the continent. Regions which lagged technologically desired favorable relations with more developed states, tribes and nations which relied on trade wanted assurances of a stable economy, and small powers wanted protection against large, expansionist ones.
The Continental Congress of 1440 took place in Pawhuska, the capital of the Osage Nation, which was by all accounts the most centrally-located nation on the continent. It lasted from August 9
th to November 30
th and contained delegations from over fifty recognized nations, with almost a hundred attendees total. It was the first of its kind, a truly continental gathering of diplomats, both men and women, from a huge variety of tribes and races – nearly all of them choosing to attend in traditional ceremonial attire.
The Continental Congress had many goals, from recognition of international borders, discussions of the so-called "Development Zones", and speeches and presentations on the history of reservations since the translocation, including committees designed to share information on health care, technological progress, and political developments. To give but one example of the level of information exchange at play between the delegates, the Annette Island Naval Academy would later claim that a chance conversation between a Passamaquoddy and an Annette Islander on their different shipbuilding programs propelled the Federation's naval capabilities forward by almost a decade.
However, the most long-lasting outcome of the Continental Congress came when the Osage Nation proposed the idea of a multinational union encompassing the entire North American continent. The architect of this pitch was Frank Wilson, an Osage teacher, writer, and later statesman.
The Seminole like to claim that they were the first state of the Federation, and there is certainly a seed of truth to that - their delegate was the first to approve of Frank Wilson's proposal. The Seminole had always been conscious of their position as the "first line of defense" for the Native Americans, and afterwards they were among the staunchest Federation loyalists.
After the Seminole, the Union of Southwest tribes and their satellite states were the first group of delegates to collectively approve of the idea. Their representatives wanted access to markets to fuel their growing industrial economy, and they already had close ties with the Osage Nation and its own sphere of influence – the Pawnee, Wichita, and Caddo, who of course supported the motion as well, the Caddo quite enthusiastically. They were followed by a scattering of others, including the Quigaltam League, the UCS, and the Republic of Los Angeles.
These "Day One Delegates" were the only ones to approve of Wilson's motion on the same day it was introduced – the other delegations adjourned to discuss the matter in separate meetings.
The delegation from the Pacific Northwest would have probably been among the Day One Delegates if there had not been so many of them. The delegation returned the next day led by Trina Wapsheli, a Yakama lawyer and politician who had been one of the framers of the New Tacoma Agreement, which she presented as a model for the Federation.
The Great Plains Community was more skeptical. While they certainly were willing to cooperate with each other, and were open to being friendly with other tribes, as a collection of lightly-populated states who still sat on rich deposits of coal and oil, they were deeply skeptical of both a central government and foreign business interests as represented by a free trade area. However, they also saw an opportunity to secure their sovereignty by enshrining it in the Federation itself.
The Great Plains delegates were ultimately united by Anna Littlebear, a Northern Cheyenne activist and politician, who convinced them that they had more to gain by being part of the Federation than outside it, especially given the core of the Federation would be to their south and, if the Pacific Northwest joined, to their west as well. Littlebear believed the Federation represented a spirit of cooperation and mutual respect between Native Americans, and wanted to see those values enshrined in its founding document.
The Great Lakes and Northeast delegations took longer to agree. The Haudenosaunee delegates (and several others) actually reported home about the debate via radio – nearly all major nations by 1440 possessed at least one radio for official communications. These Northeastern nations called emergency sessions of their highest councils to discuss the matter, and messages were sent back and forth for almost a week. At first the Haudenosaunee seemed unlikely to join, however nearly all of their neighbors seemed keen on doing so. The Haudenosaunee had been expansionist, conquering and assimilating multiple other tribes, and now had territory stretching from Chesapeake Bay to the St Lawrence River. While the various Northeastern nations had cooperated to contain the Abenaki, none of them were under the assumption that they would be safe from Haudenosaunee aggression – unless, of course, there were proper assurances. However, the Federation would do them no good if it was on the other side of the continent.
The Council of Three Fires soon determined that a multinational organization would be in their best interest. Despite initial promises of friendship and cooperation between the new, reservation-run government of the Council of Three Fires and the Haudenosaunee, the two nations soon became "gentle competitors" for influence among 15
th Century tribes stuck between them, for control of trade routes across the Great Lakes, and for expansion. The Council of Three Fires had given supplies and aid to the Huron and Algonquin as a balance against the Haudenosaunee on their northern border, and during the course of negotiations even convinced the two nations to join the Federation. In the late 1430s, they even fought proxy wars using their allies in the Ohio River Valley as both nations sought to stake their influence on the upper Ohio River.
The Council of Three Fires, and soon after the Passamaquoddy, Pequot, Lenape, and Powhatan, joined the Federation hoping for security against the Haudenosaunee without necessitating war. Given this situation, the Haudenosaunee felt the pressure rising, and understood that a check on their ambitions so soon would probably be one which they would not be able to recover from. After a week of deliberations by the Haudenosaunee tribal council, their delegates announced they were willing to begin negotiations.
The two dominant nations of the Northeast contributed their own voices to the Federation's planning: Tyler LaPlaunt, an Ojibwe community organizer, activist, and diplomat, had been a Council of Three Fires delegate to the Continental Congress. The Iroquois dispatched Aliquippa, a formidable Seneca Clan Mother and an expert on Haudenosaunee procedure.
The final nation to join was the fractious, squabbling Mississippi League. Their constituent city-states had to be convinced, bribed, and bullied into agreeing to negotiations.
In a strange way, the structure of the Federation was determined before its actual responsibilities were. The Northeast and Great Lakes delegations insisted on establishing the nature of the Federation's government, and if it was to be democratic, then on selecting the representatives before ratifying any founding documents. Several types of representation were proposed, but most were discarded. The initial suggestion of representation for each tribe was rejected – some tribes had populations in the mere hundreds, while the Navajo had a population in the hundreds of thousands. Proportional representation was likewise considered, but was rejected by several of the more established nations – the Haudenosaunee, the Council of Three Fires, the Union of Southwest Tribes, even the Great Plains Community. Already a divide was being drawn over whether the Federation was to be a multinational organization, or a united government. On the balance, the more powerful and numerous nations leaned towards the former, so plans for a single nation encompassing all tribes were scaled back.
There were five framers of the Federation Charter – Trina Wapsheli, Anna Littlebear, Frank Wilson, Tyler LaPlaunt, and Aliquippa. Many other tribes made contributions, and of course the text of the document was argued over and debated and revised many times, so that ultimately every member of the 1
st Parliament of the Federation had a hand in shaping the document.
The role of the Federation is expressed quite clearly in the Preamble of its founding document, the Federal Charter:
"We, the American Peoples, in order to ensure the peaceful cooperation between all tribes and nations; establish between them justice and domestic tranquility; provide for their common defense; promote their health and welfare; ensure their freedom of travel, commerce, and expression; and safeguard their natural and cultural heritage for posterity; do ordain and establish this Charter of the Federation of American Peoples."
The Federation, then, was envisioned as a continental free trade area with a single currency and open borders, with the Federation government existing to enforce environmental regulations, regulate controlled substances, operate an international court, and manage both internal diplomatic relations while representing its members states to foreign powers.
The Federation's ruling body would consist of a Parliament, composed of one Member of Parliament from each member state – this was suggested by Aliquippa, a modification of the Haudenosaunee system and a compromise between those who wanted a representative central government and those who wanted a looser system of sovereign states. MPs would be appointed or elected, in a manner as decided by the member state, and MPs would elect a Prime Minister.
The Prime Minister's main role was to act as the chief parliamentarian, bringing issues to votes and otherwise acting as head of state. However, he also had the authority to appoint the heads of the Federation's executive branch. The executive was divided into seven Bureaus, and each was headed by a Secretary.
The Bureau of State handled foreign affairs, including diplomacy with foreign nations, but the Secretary of State also served as the joint commander of the Federation's Armed Forces. While the Federation had no standing army, the Secretary of State had the authority to call up volunteers from the members states and was automatically the highest-ranking officer in the Federation.
- The Bureau of Health operated hospitals, disease prevention programs, research into medical science, and reacted to health emergencies.
- The Bureau of the Interior enforced environmental regulations and conducted environmental studies.
- The Bureau of Commerce regulated both external and internal commerce and regulated controlled substances.
- The Bureau of Finance managed the Federation Treasury and the Federation Central Bank, managed currency, and drafted the Federation's budget. The Secretary of Finance also collected taxes.
- The Bureau of Science funded scientific research and development, as well as funding and operating modernization and infrastructure projects.
- The Bureau of Justice ran the International Courts as well as operating a Federation Police Service which enforced Federation laws.
This being decided, the 1
st Parliament of the Federation met before its Charter had even been ratified and began the hard task of laying out the powers, responsibilities, and restrictions of the Federation and its various agencies. Frank Wilson was elected the first Prime Minister of the Federation, who appointed judges to the Federation courts and Secretaries to their various agencies.
Meanwhile, by the time the Federation was officially founded, its members states had been busy. The tribes of the Pacific Northwest coast, minus the Tlingit and Haida, had formed the nation which they named Confederated Tribes of Cascadia, while the tribes of the interior likewise united into the Confederated Tribes of the Columbia. Both were much stronger unions than the Federation itself. Meanwhile, the squabbling city-states of the Ohio River had pulled off a political coup and united for mutual protection and clout against their larger neighbors. The Ohio League was the last state to join the Federation.
In 1442, the Charter of the Federation of American Peoples was ratified by representatives from thirty-six members states.
A flag was chosen – four vertical stripes in black, gold, white, and red. The currency of the Federation was called the pound, as it was backed by gold and silver – this policy, some noted, was championed by the Union of Southwest Tribes, who had access to many of the region's gold and silver mines.
A capital site was hotly disputed, before Parliament agreed on a centrally-located site, an abandoned mound city across the Mississippi River from the old site of Cahokia. A name for this capital was likewise disputed – the chief problem in selection symbols of the Federation would always be the complete lack of any iconography that was common to all Native American tribes. Eventually someone had the common-sense idea of asking a nearby tribe the name of the site, who stated that the city had been named something equivalent to "the City on the West Bank of the River". The name of Westbank soon saw regular use, and the mound where the Federation's capitol building was raised was christened, quite knowingly, as Capitol Hill.
The Federation finally stretched from the Atlantic to the Pacific, from the tropical islands of the Taino to chilly Haida Gwaii. Of course, much of this territory was without central government, under weak government control, only recognized government authority on paper, or had been completely depopulated by disease and migration. Still, at the time of its founding, the Federation had within those borders 5 million people, with 1 million of them born in the 21
st Century.