As I said last week, the Jarnian Confederation acts only to prevent Human-occupied planets from preying on each other or on other sentient species, or to provide emergency aid. But it needs some structure to do this. The interaction of my characters with this structure provides much of the plot of my fiction.
Originally (and still to a large extent in Homecoming and Tourist Trap) the Confederation as a whole was ruled by the R’il’nai. As their numbers dwindled, the Councils were developed to provide the remaining R’il’nai with information and a part-Human sounding board. Membership was originally determined by tests to determine the fraction of traits R’il’nian-Human hybrids showed that were clearly of R’il’nian origin. Those with over seven-eighths R’il’nian traits were considered part of the Inner Council.
The Outer Council was composed of High R’il’noids, those with more than three-fourths R’il’nian traits, and was primarily an advisory, fact-finding and enforcement body subject to the Inner Council. Those with more than half R’il’nian traits were considered R’il’noid. R’il’noids were essential to the running of the Confederation and were subject to Confederation law but not to planetary law. This was primarily because of problems that had arisen in the past because of planetary laws (such as a ban on travel at the new moon, punishable by death) which prevented R’il’noids from carrying out their professional duties. At that time virtually all adult R’il’noids had the R’il’nian empathy at least to the extent that they could be trusted not to take advantage of their immunity to planetary law.
R’il’nian-human hybrids were rare, is spite of official encouragement for R’il’nian males to father offspring from Human or R’il’noid women. Such matings were often sterile. A R’il’nian scientist, Çeren, developed an in vitro fertilization method that greatly increased the production of crossbreds, and also developed a more objective method of ranking R’il’noids by the fraction of active R’il’nian-derived genes. The unintended consequences of both these developments (which were desperately needed at the time) set up the problems in my science fiction.
By the time of Homecoming the Inner Council was actually making most of the decisions to run the Confederation, though the only surviving R’il’nian, Lai, had absolute veto power at least in theory, though he rarely if ever used it. Barring that veto power, the Inner Council was ruled by a majority vote providing at least 5/6 of the Inner Council members were present and voting. Reconsideration of a vote already taken required a 2/3 plus majority. By the time of the trilogy veto power no longer exists, and this is how the Confederation is ruled and the Horizon War was started.