At the council, Kaen Eowenríel proposed that the northern Dúnedain might relinquish a portion of their ancient lands to the Elves returning from Aman, but only on the condition that these Elves repay in kind—through knowledge, craft, and wealth.
All eyes turned toward Ecthelion II, Steward of Gondor, who bore the burden of that decision. He drew a slow, weary breath and said, "I agree to this arrangement. Yet let it be known: after the sundering of Arnor, the lands of Arthedain, our last northern kingdom—must remain inviolate. They are the final inheritance of my people, and no race or power shall lay claim to them."
Once, the northern realm of Arnor had been divided into three kingdoms: Arthedain, Cardolan, and Rhudaur.
Their boundaries had stretched wide across the northern world—
Arthedain, with Fornost as its heart, ruled the rolling plains and high hills of northwestern Eriador: the Shire, the dim hills of Evendim, and Annuminas upon the heights, richest and fairest of the northern Dúnedain realms.
Cardolan, lying southward, encompassed the vale of Minhiriath and the south downs, touching the northern marches ofEowenría and bordered in the south by the Great Sea and the green depths of the Eryn Vorn Forest.
Rhudaur, shadowed by the northern mountains of Angmar, spread between the rivers Mitheithel and Bruinen, its fortress at Cameth Brin long since fallen. Much of its soil now lay beneath Kaen's kingdom, reclaimed from the darkness that had devoured it.
Beyond these, there remained the desolate lands of Enedhwaith, and the ruins of Eregion, once a Noldorin stronghold.
Such was the vastness of the North. Even if millions of Elves were to come from across the Sea, there would be room enough still for men, beasts, and forests. Middle-earth, save for Gondor and Rohan, was wide and wild, its kingdoms separated by leagues upon leagues of untamed country.
This was why Thengel, King of Rohan, had protested so fiercely at the thought of Elves dwelling upon his border, never before in all of history had a foreign people made their home so close to the Riddermark.
Kaen turned to Ecthelion and said simply, without pause, "Agreed."
"Agreed," echoed the rest.
Thus the decision passed with full accord; none among the rulers raised objection.
Ecthelion, though victorious in word, seemed to age ten years in that moment. Kaen glanced toward him and sighed softly. Then, in thought alone, he sent his voice to the Steward:
"Do not grieve for what was lost, my friend. It was lost long ago. The blood of kings is not yet ended. Gondor shall shine again."
Ecthelion startled, eyes widening in disbelief, his face lit by wonder and a spark of hope.
Kaen smiled faintly and continued, "The heir of kings needs time. One day, he shall bear the burden of destiny and return when Gondor calls for him. Until that day, you must guard this secret well—tell no one, not even your son."
The Steward mastered his emotion, hiding his astonishment behind a calm, unreadable face. He inclined his head in solemn understanding. Kaen gave no further glance.
The matter of the Elves' new dwelling was thus settled. Now the council turned to the forging of a greater bond: the creation of the Free Alliance.
Every ruler present grasped the gravity of the moment. They knew instinctively that what they shaped here might alter the fate of Middle-earth itself.
So began long hours—then days—of discourse and debate. From their words emerged the first outline of the Alliance of the Free Peoples:
Definition: A confederation of all free races and realms of Middle-earth, bound by oath.
Purpose: To provide counsel among nations, to mediate disputes, and to prevent strife between the free kindreds.
Mission: To stand united against the Enemy; to raise a host when darkness gathers anew.
Structure: Within the Alliance, there would be Representatives, Councillors, and a High Lord.
Representatives would be countless, each kingdom and race sending their chosen voice.
Four Councillors would govern deliberations—one each for Men, Elves, Dwarves, and Wizards.
And above them, a single High Lord would hold the power to decide when votes were divided. If all four Councillors opposed him, his will could be overturned and even his title stripped.
For days they argued and refined these laws until at last the council agreed upon its first councillors:
Thorin Oakenshield for the Dwarves;
Elrond of Rivendell for the Elves;
Saruman the White for the Order of Wizards;
and among Men, the chair would pass by turns between the rulers of Gondor and Rohan.
As for the mantle of High Lord—it fell, by unanimous voice, to Kaen Eowenríel.
For none other among them could command the trust of all three races, nor wield such renown across the lands of Middle-earth.
And thus, the Council of the Free Alliance was born.
Kaen bowed deeply to the gathering and spoke:
"When duty calls upon my shoulders, I do not shrink from it. Let us cast aside hollow courtesy. As High Lord of this Alliance, I shall act without delay."
He raised his head, his voice steady as iron.
"My first decrees are these:
"First— when the Elves of Aman arrive upon our shores, I shall represent the Free Alliance in parley with them. They may enter Middle-earth only if they consent to yield part of their sovereignty, to join our Alliance, to stand beside us against the returning dark.
"Second—concerning the migration of the Avari Elves to Fangorn. Their numbers exceed two hundred thousand by large. Such a host cannot move unseen. The Enemy will surely take notice. The Avari are not warriors; thus, we must lend our strength to guard them on their journey."
He laid out his plan. Along the long road from the East, the Avari would be escorted by many hands:
From the four Dwarven kingdoms of the far East—Ironfists, Stiffbeards, Blacklocks, and Stonefoot—two thousand goat-riders each would ride northward along the River Running.
From there, the Dwarves of the Iron Hills would take up the charge, guiding them westward until they neared Mirkwood.
At that point, the Wood-elves would join the escort through the shadowed eaves.
When they emerged through the Old Forest Road into the Anduin Valley, soldiers ofEowenría would take the duty southward, passing Lothlórien and the fields of Rohan, until at last the Avari entered the green vastness of Fangorn.
Kaen bowed once more and said solemnly, "This escort shall stand as a vow between our peoples. The coming of the Avari will be our first trial as allies against the dark. Let us act as one."
"Rohan shall send riders to join them!" declared Thengel.
"The Dwarves have no objection," said Thorin.
"The Elves will lend their warriors," added Elrond.
Each ruler bowed in turn, pledging their aid.
And so it was agreed—the great Relay of Guardianship began to take shape, the first deed of the newborn Free Alliance, and a living sign of hope in a world long shadowed by darkness.
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