In 1868 Congress ordered another census of the East Cherokee, to serve as a guide in future payments, the roll to include only those persons whose names had appeared upon the Mullay roll of 1848 and their legal heirs and representatives. The work was completed in the following year by S. H. Sweatland, and a payment of interest then due under former enactment was made by him on this basis. [438] "In accordance with their earnestly expressed desire to be brought under the immediate charge of the government as its wards," the Congress which ordered this last census directed that the Commissioner of Indian Affairs should assume the same charge over the East Cherokee as over other tribes, but as no extra funds were made available for the purpose the matter was held in abeyance. [439] An unratified treaty made this year with the Cherokee Nation west contained a stipulation that any Cherokee east of the Mississippi who should remove to the Cherokee nation within three years should be entitled to full citizenship and privileges therein, but after that date could be admitted only by act of the Cherokee national council. [440] After the retirement of Thomas, in the absence of any active governmental supervision, need was felt of some central authority. On December 9, 1868, a general council of the East Cherokee assembled at Cheowa, in Graham county, North Carolina, took preliminary steps toward the adoption of a regular form of tribal government under a constitution. N. J. Smith, afterward principal chief, was clerk of the council. The new government was formally inaugurated on December 1, 1870. It provided for a first and a second chief to serve for a term of two years, minor officers to serve one year, and an annual council representing each Cherokee settlement within the state of North Carolina. Kâ'lahû', "All-bones," commonly known to the whites as Flying-squirrel or Sawnook (Sawanu'gi), was elected chief. A new constitution was adopted five years later, by which the chief's term of office was fixed at four years. [441]