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How do I join a federation?

My Capitol is level 6 but I don´t have starships unlocked yet. I am also independent. Another player told me to click on my Capitol ---> Policy and then the option should be at the top of the list. But there is nothing like that. Anyone know the requirements/how to join a federation?
You should build a Hall of congress to be able to join a federation.

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Ape Apps, LLC is an independent software development company founded in 2010 by Brandon Stecklein. Over the years, Ape Apps has published over 400 apps and games across various platforms. You can get in touch with Brandon on Twitter or by leaving a post on his wall @bastecklein
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