The Countries of the Pays d'en Haut
The state of the Upper Country is divided into 22 traditional regions. These are usually called "countries," (in French, "pays") which is slightly confusing. The name comes from colonial usage, when traders would refer to "Detroit Country" or "Le Pays du Chequamegon." They developed piecemeal; some have existed since the mid-17th century, while the newest ones were created in 1890. This gradual development and long history is the reason the 22 countries differ so widely in area and population.
The Countries' role has changed greatly over time. In the earliest days of the Upper Country, there were certain local networks of towns and villages that were the natural constituents of the bigger Upper Country network. These local networks had denser and more diverse populations than the rest of the Upper Country, and they were centers of trade and arbitration. Eventually, French officials were placed in some of the most important centers - Green Bay, Chequamegon, Michilimackinac, later Chicagou and St. Joseph - which helped strengthen the ties of the Upper Country alliance.
In the late 18th and early 19th centuries, the Upper Country began its evolution from an alliance into a state government. The earlier local Countries became states within a state in this time. They assumed some important functions: justice, roads, public safety. It's important to understand that in this time, the Countries were special territories within the Pays d'en Haut; most of the state was not subdivided in this way.
As the population expanded and new settlers arrived, some new Countries were created to meet their needs. New Holland, Minwaking, Waukegan, and Mesabi all came about because of different waves of settlement.
In 1890, an act of the assembly standardized local government in the Upper Country. The entire state was divided into regions, and their powers and responsibilities were made standard. Many of the Countries created at that time were quite obviously space-filling entities: the Massif Country, for example, or the wildly unimaginatively named Middle Country.
In the next 3 decades much of their power was progressively taken over by the state, and by the 30s the Countries were largely ceremonial. Nowadays, quite a lot of administrative responsibility has been devolved back to the Countries. Most of that consists of local branches of the state government; the elected Country councils per se remain fairly powerless. They are important as a focus for civic involvement. They work with private organizations and charities on various community projects. Being old, anachronistic bodies, they are still elected in public, caucus-like votes in town halls.
Later I'll write a more detailed description of each of the 22.