The bill that became law on May 30, 1854, by which the U.S. Congress established the territories of Kansas and Nebraska. By 1854 the organization of the vast Platte and Kansas river countries W of Iowa and Missouri was overdue. As an isolated issue territorial organization of this area was no problem. It was, however, irrevocably bound to the bitter sectional controversy over the extension of slavery into the territories and was further complicated by conflict over the location of the projected transcontinental railroad. Under no circumstances did proslavery Congressmen want a free territory (Kansas) W of Missouri. Because the West was expanding rapidly, territorial organization, despite these difficulties, could no longer be postponed. Four attempts to organize a single territory for this area had already been defeated in Congress, largely because of Southern opposition to the Missouri Compromise. Although the last of these attempts to organize the area had nearly been successful, Stephen A. Douglas, chairman of the Senate Committee on Territories, decided to offer territorial legislation making concessions to the South. Douglas's motives have remained largely a matter of speculation. Various historians have emphasized Douglas's desire for the Presidency, his wish to cement the bonds of the Democratic party, his interest in expansion and railroad building, or his desire to activate the unimpressive Pierce administration. The bill he reported in Jan., 1854, contained the provision that the question of slavery should be left to the decision of the territorial settlers themselves. This was the famous principle that Douglas now called popular sovereignty, though actually it had been enunciated four years earlier in the Compromise of 1850. In its final form Douglas's bill provided for the creation of two new territories—Kansas and Nebraska—instead of one. The obvious inference—at least to Missourians—was that the first would be slave, the second free. The Kansas-Nebraska Act flatly contradicted the provisions of the Missouri Compromise (under which slavery would have been barred from both territories); indeed, an amendment was added specifically repealing that compromise. This aspect of the bill in particular enraged the antislavery forces, but after three months of bitter debate in Congress, Douglas, backed by President Pierce and the Southerners, saw it adopted. Its effects were anything but reassuring to those who had hoped for a peaceful solution. The popular sovereignty provision caused both proslavery and antislavery forces to marshal strength and exert full pressure to determine the “popular” decision in Kansas in their own favor, using groups such as the Emigrant Aid Company. The result was the tragedy of “bleeding” Kansas. Northerners and Southerners were aroused to such passions that sectional division reached a point that precluded reconciliation. A new political organization, the Republican party, was founded by opponents of the bill, and the United States was propelled toward the Civil War.