Congress was really in control of the territories government as not only it appointed Governors but it can nullify any laws passed by the local legislature of a US territory. Furthermore, Congress can even pass laws for a US territory as long as these respect local culture and sensibilities and do not violate the constitutional rights of the local population. Territories elect a delegate to Congress who can attend congressional hearings, sessions and conferences. They can even propose legislation and vote in committees but they cannot vote (with some restrictive exceptions).
