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Spoiler warning: Plot and/or ending details follow.

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The Confederate Congress was a governing body within the Breen Confederacy that deemed what was "within the established norms" for its citizens. It was responsible for setting uniform standards of performance as well as service for all services within the military, educational sectors and the government. Such criteria were made to ensure optimal performance and not to create any form of bias which was why certain Breen species were better suited for certain tasks than others which was not due to favoritism but due to them meeting those required demands. (ST novel: Zero Sum Game)