Congress provided a procedure for dividing the land into territories. The Northwest Ordinance also set requirements for the admission of new states, which, however, seemed to overlook Native American land claims. There were three basic stages for becoming a state:
1. Congress would appoint a territorial governor and judges
2. When a territory had 5,000 voting residents, the settlers could write a temporary constitution and elect their own government
3. When the total population of a territory reached 60,000 free inhabitants, the settlers could write a state constitution, which had to be approved by Congress before it