The form of government as determined by the Ordinance of 1787, first established a Governor and three judges whose duty it was to compile from existing statutes a code of laws for the territory. The large powers of the Governor, and the entire control by the federal government were the distinctive features of what was termed the first territorial grade. On attaining to a population of 5,000 free male adults the territory was eligible to a second grade, in which a Governor and legislative councils, appointed by Congress, and a House of Representatives, elected by the people, succeeded to the Governor and judges. Laws created by this legislative body took the place of the borrowed code. The territory was entitled to a delegate in Congress, with the right of debate but not of vote. This form of government was imposed until the territory should have 60,000 free inhabitants, which population entitled it to statehood with its own constitution and machinery for government.