Which also makes the need for a Horde council seem strange as it seems like there would be no difficulty in the High King bullying the rest of the Alliance if he wanted to. There is technical control and there is in practice influence.
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The Alliance was already moving towards a federal arrangement even before the Second War ended. It’s one of the reasons the Alliance fractured afterward. It was at the point where the High King (Terenas) even had taxation rights among the rest of the Alliance.