Unite the western towns and groups, powder gangers, Khans, primm, Fiends, Freeside Jacobstown etc..
Form a trading route supply line let then understand NCR is too big to see to their needsa and is hated by most of them to an extent, CL is just plain crazy and will broke no personnal freedoms or liberties.

So a new free state based on an early NCR templete, but expanded on with each individual groups needs are taken into account, which they promise troops, food, supplies to the whole but in exchange are protected by the others.

Give the Followers a permenant centre to establish education and science, in exchange for help, tax the strips customers heavily to provide for this and make it known as a central hub, or nexus for diplomatic meetings.