This is set on an Earth long after a nuclear calamity nearly destroyed civilization. Humanity has spent a long time clawing back up the mountain, because humanity is resilient like that. Humanity is also very good at repeating mistakes.
Anderson jumps the story all around the world, starting in what we'd call Europe, part of which is now the Domain, ruled by a Captain chosen from various Clans, who controls a floating, solar-powered station 30 kilometers up. But he also jumps to the Pacific Northwest, where there are tensions between the Northwest Union and the Maurai Federation, which put the Union under its heel over an earlier attempt to harness nuclear power.
And so Anderson turns the focus on many different characters. Iern's a pilot in the Domain, who might one day become Captain. Mikli Karst is a spy for the Northwest Union. Terai is likewise an intelligence officer for the Maurai. Plik is a drunken poet. Vanna is a Librarian in a Gaean belief system of some sort. Ronica is a scout and outdoorswoman for the Union. All of them have different perspectives, different lines they draw, different goals, but what Anderson shows is that each has blind spots about themselves and their societies.
Vanna's country has an entire class of "slugai" who are indentured servants at best. But we are assured they are free to move to a different farm if they aren't happy, and can even receive education if they show promise. Ronica fully believes the Union will only use nuclear power to reach beyond the Earth, so that it won't be necessary to pollute or mine it out for resources. Terai is sure it's necessary to keep the Union from nuclear power so they don't contaminate the world, and if it just so happens to keep the Maurai Federation (who aren't exactly sharing their technological advantage) at the top of the food chain, well, that's just a coincidence. Iern hates the idea of being stuck behind a desk, but hasn't considered that he might not like what someone else does once they get there.
Problem being, it takes time to flesh out the politics, cultures and motives of all these disparate people. Or more accurately, it takes a lot of pages. Over 60% of the book was done before all the moving of the pieces and setting of the table concluded and things actually started to happen. That 60% wasn't uninteresting exactly; it's necessary for the cause-and-effect later on to make any sense. I did start to wonder what was the point, though.
The point seems to be we're all on the same world. The Union insists they just want to improve their lot through what seems to them a perfectly viable route, and that they aren't hurting anyone. Just pursuing their own freedom. But their actions aren't in a vacuum, and not even everyone within the Union has the same motives. More countries get involved, each for their own reasons (although Anderson doesn't go into depth for all of them.)
The fighting in turn promotes changes in those countries, as Anderson sets up anti-imperialist or anti-war sentiment in the younger generation of the Maurai, which outrages Terai in that sense of, "do you understand what we sacrificed for you?" Iern is outmaneuvered by a rival of his for a Captaincy Iern didn't really want, only for the winner to realize it's not such a great prize. It's interesting to watch that character take power under false claims and promises, then repeatedly compromise the values he professed to have to keep his allies, or just to keep hold of what he's seized. He can claim the title, but not necessarily the respect that goes with it.
'Plik looked long at him, while Wairoa arranged the tray in its rack and after he had sat down again. "I think you may be the loneliest human creature on Earth," the Angleyman murmured finally, "but you control yourself like a steel spring."
Wairoa started the least bit, and almost spoke.
"Your special senses and abilities - " Plik went on. "Yes, it is something to be the great Watchman. And at the end of the world, you can let that coiled spring fly free."'
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