Congress controls 3.5 million Americans living in five inhabited U.S. territories—Puerto Rico, Guam, the U.S. Virgin Islands, American Samoa, and the Northern Mariana Islands—without giving them voting representation. Article IV''s Territory Clause grants Congress power to ''make all needful Rules and Regulations respecting the Territory or other Property belonging to the United States.'' Territorial residents serve in the military, pay federal taxes (except income tax in most territories), and follow federal law, but cannot vote for president and have no senators. Puerto Rico''s 3.2 million residents outnumber 21 states but send a non-voting delegate to Congress. The Supreme Court''s Insular Cases (1901-1922) ruled that constitutional rights don''t fully apply in territories unless Congress extends them. That lets the federal government impose policies territorial residents cannot change—Puerto Rico must use U.S. shipping, accept federal minimum wage, and follow mainland regulations, all decided by a Congress they don''t elect. Territorial governance remains America''s clearest example of taxation and regulation without representation.