The rejected propositions of the Constitutional Convention

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THE REJECTS) PROPOSITIONS OF THE CONSTITUTIONAL CONVENTION

A T h esis P r e s e n te d , t o The F a c u l t y o f t h e D e p a r tm e n t o f H i s t o r y The U n i v e r s i t y o f S o u t h e r n C a l i f o r n i a

In P a r t ia l F u lfillm e n t Of t h e R e q u ir e m e n ts f o r t h e D e g r e e M aster o f A rts

by M abel C l a i r e N i s s l y F e b r u a r y 19^2

UMI Number: EP59510

All rights reserved INFORMATION TO ALL USERS The quality of this reproduction is dependent upon the quality of the copy submitted. In the unlikely event that the author did not send a complete manuscript and there are missing pages, these will be noted. Also, if material had to be removed, a note will indicate the deletion.

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This thesis, writ ten by .......................M B E L ...C M IE E ..N 1S SL Y .................... under the direction of h&T.. F ac u lt y C o m m it te e , a n d a p p r o v e d by a l l its m e m b e r s , has be en pr ese nte d to an d a c c e p te d by the Co unc il on G rad ua te S t u d y and Resea rch in p a r ti a l fulfill­ m e n t o f t h e r e q u i r e m e n t s f o r th e d e g r e e of MASTER OF ARTS

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TABLE OF CONTENTS CHAPTER I.

PAGE INTRODUCTION............................................................................

1

S t a t e m e n t o f t h e p r o b l e m ........................................

2

I m p o r ta n c e o f t h e s t u d y

2

.

....................................

O r g a n iz a t io n o f r em a in in g c h a p te r s II.

GENERAL PROPOSITIONS

. . . .

5

..................................“

C o n v e n t io n P r o c e d u r e

6

...............................

6

Framework o f t h e C o n s t i t u t i o n ..........................

12

Framework o f t h e G o v e r n m e n t ..........................

.

15

THE EXECUTIVE DEPARTMENT.............................................

22

THE NATIONAL LEGISLATURE.............................

48

V.

THE UPPER HOUSE

73

V I.

THE LOWER HOUSE

III. IV .

. V II. V III.

........................ ..................................

THE NATIONAL JU D IC IA R Y ..................................................

X.

105

RELATIONS OF THE CENTRAL GOVERNMENT AND THE S T A T E S ........................................

IX .

89

112

MISCELLANEOUS PROPOSITIONS........................................

11 8

SUMMARY AND CONCLUSION .

15 1

BIBLIOGRAPHY

.

...................................

..............................................................

157

CHAPTER I INTRODUCTION Many b o o k s a n d a r t i c l e s h a v e b e e n w r i t t e n on t h e o r i g i n and e v o l u t i o n o f t h e C o n s t i t u t i o n i n t h e C o n s t i t u ­ t i o n a l C o n v e n tio n o f 1 7 8 7 . The e v o l u t i o n o f e v e r y c l a u s e o f t h e C o n s t i t u t i o n h a s b e e n t r a c e d by v a r io u s h i s t o r i a n s .

W h ile d i f f e r e n c e s

o f o p in io n i n t h e C o n v e n tio n h a v e b e e n m e n tio n e d , i t h a s b e e n t h e a g r e e m e n t s an d t h e c o m p r o m ise s t h a t h a v e b e e n c a r e f u l l y e x p l a i n e d , and t h e f i n a l p r o d u c t t h a t h a s come in for p r a is e . E m p h a sis h a s b e e n p l a c e d b y t h e w r i t e r s upon w h at was a d o p t e d , l e s s

a t t e n t i o n b ein g g iv e n to p r o p o s itio n s

d e f e a t e d i n th e C o n v e n tio n . A l l o f t h i s p r o c e d u r e was p e r f e c t l y p r o p e r , b u t i n th is

th e sis

th e purpose i s

t o make a s p e c i a l s t u d y o f t h e

p r o p o s i t i o n s r e j e c t e d by th e C o n v e n tio n . The m e th o d o f p r o c e d u r e f o l l o w e d i n t h e C o n v e n t io n was t h a t o f d i s c u s s i o n .

Any d e l e g a t e c o u l d i n t r o d u c e an y

p r o p o s i t i o n w h ic h h e d e s i r e d . se co n d in g m o tio n s.

T h is was d o n e by m aking and

W h ile t h e m o t i o n s w e r e u n d e r d i s c u s s i o n

am endm ents t o them w e r e f r e q u e n t l y m ad e. s t i t u t e m o tio n s w ere a c c e p t e d .

S o m e tim e s s u b ­

Many m o d i f i c a t i o n s m i g h t b e

made i n a p r o p o s i t i o n b e f o r e i t was a d o p t e d .

In th e co u rse

o f t h i s p r o c e d u r e many a l t e r n a t i v e p r o p o s i t i o n s w e r e s u r e to he r e j e c t e d .

F o r e x a m p l e , a f o u r - y e a r te r m f o r t h e

P r e s i d e n t was f i n a l l y a g r e e d t o , h u t i n t h e d i s c u s s i o n s o n t h i s s u b j e c t some t e n o r t w e l v e a l t e r n a t e t e n u r e s w e r e p r o ­ p o s e d and d e f e a t e d . The p r o p o s i t i o n s d e f e a t e d i n t h e C o n v e n t i o n w e r e num erous.

N e e d l e s s t o s a y , many o f them w e r e t r i v i a l .

Many d e a l t w i t h m e th o d s o f p r o c e d u r e i n t h e C o n v e n t i o n o r w i t h m in o r c h a n g e s i n w o r d in g o r p h r a s e o l o g y . such as th e s e have heen o m itte d .

P ro p o sa ls

O nly t h e m ore i m p o r t a n t

r e j e c t e d p r o p o s i t i o n s fo rm t h e h a s i s o f t h i s s t u d y . S ta te m e n t o f t h e p r o b le m . p r o b le m a t t a c k e d :

To l i s t

T h is ,

t h e n , was t h e

t h e m ost im p o r ta n t p r o p o s i t i o n s

w h ic h w e r e d e f e a t e d i n t h e C o n v e n t i o n ,

t o c l a s s i f y an d t o

s t u d y th e m . Im p ortan ce o f th e s t u d y .

The i m p o r t a n c e o f t h e

s t u d y may h e s e e n when one n o t e s som e o f i t s

r e su lts:

(1 )

I t t h r o w s l i g h t upon t h e p r o c e d u r e i n t h e C o n v e n t i o n .

(2 )

I t sh o w s t h e c o n f l i c t i n g

o p i n i o n s and i n t e r e s t s

o f th e

d e l e g a t e s b e t t e r t h a n e m p h a s is u p on t h e p r o p o s i t i o n s ad o p ted .

(3 ) I t a ls o b r in g s out th e d e l ib e r a t iv e c h a r a c te r

o f t h e C o n v e n t i o n — t h e e x t e n t t o w h ic h c o n c i l i a t i o n and c o m p r o m ise p r e v a i l e d .

( 4 ) The s t u d y s h o w s , f u r t h e r ,

t h e C o n v e n t i o n was w i s e i n m o s t o f i t s

th at

d e c is io n s , b u t, a ls o

(5 )

t h a t i t made some v e r y u n v i s e c h o i c e s .

(6 ) F in a lly ,

it

e n a b l e s one t o more a c c u r a t e l y e v a l u a t e t h e p o s i t i v e and c o n s t r u c t i v e w ork o f t h e C o n v e n t i o n . P r o p o sitio n s

t o be s t u d i e d w e r e l i s t e d and c l a s s i ­

f i e d p rep a ra to ry to d is c u s s io n . O r g a n iz a tio n o f r em a in in g c h a p t e r s . d iv id e d in to a summary.

T h is t h e s i s

is

t e n c h a p t e r s , w h ic h i n c l u d e a n i n t r o d u c t i o n and I n C h a p t e r s I I to . IX i n c l u s i v e ,

th e r e j e c t e d

p r o p o s i t i o n s a r e g ro u p ed under a p p r o p r ia t e h e a d in g s a s f o l ­ lo w s: C h a p te r I I . A. B. C.

G eneral P r o p o sitio n s

The G e n e r a l P r o c e d u r e o f t h e C o n v e n t io n The Framework o f t h e C o n s t i t u t i o n The Framework o f t h e G overnm ent

C h a p te r I I I .

The E x e c u t i v e D e p a r tm e n t

C h a p te r IV .

The N a t i o n a l L e g i s l a t u r e

C h a p te r V .

The U pper H ouse

C h a p te r V I .

The Lower H ouse

C h a p te r V I I .

The N a t i o n a l J u d i c i a r y

C h a p te r . V I I I .

The R e l a t i o n o f t h e G e n e r a l G overnm ent and t h e S t a t e s , V e a c h t o t h e O th er

C h a p te r IX .

M i s c e l l a n e o u s P r o p o s i t i o n s , w h ic h i n c l u d e su ch q u e s tio n s a s s u f f r a g e , p r o p o s it io n s f o r a B i l l o f R i g h t s , m eth o d s o f r a t i f i c a ­ t i o n o f t h e C o n s t i t u t i o n , and p r o p o s i t i o n s t o p r o v i d e f o r a n o t h e r C o n v e n t io n i n c a s e t h i s one f a i l e d t o a c h i e v e i t s p u r p o s e .

No s t u d y s i m i l a r t o t h i s l e a s t none so c o m p lete .

one h a s e v e r b e e n m ade, a t

4 A s p l e n d i d w ork b y W i l l i a m M. M e i g s , e n t i t l e d The G rowth o f t h e C o n s t i t u t i o n , was p u b l i s h e d i n 1 9 0 0 . t r a c e s ea ch c la u s e o f th e C o n s t i t u t i o n d u rin g i t s i n th e C o n v e n tio n .

It e v o lu tio n

I t m a k e s , h o w e v e r , no a t t e m p t t o l i s t

th e d e fe a te d p r o p o s itio n s .

V ery l i t t l e

i n t h e C o n v e n t io n a r e w oven i n .

o f th e d is c u s s io n s

A v e r y v a l u a b l e w ork o f i t s

k i n d , b u t , w i t h t h e e x c e p t i o n o f one c h a p t e r ,

it

in no s e n s e

e n c r o a c h e s upon t h e them e o f t h i s s t u d y . A. n e w l y p u b l i s h e d work by J a n e B u t z n e r , e n t i t l e d C o n s t it u t io n a l C h a ff- - R e je c te d S u g g e s tio n s o f th e C o n s t it u ­ t i o n a l C o n v e n t io n o f 1 7 8 7 w i t h E x p l a n a t o r y A r g u m e n t, 1 9 4 1 , com es n e a r e r t h a n M e ig s t o b e i n g a p a r a l l e l t o t h i s - I n B u t z n e r * s work t h e C o n s t i t u t i o n i s

th e sis*

t a k e n up

c l a u s e by c l a u s e a nd p a r t o f t h e C o n v e n t io n d i s c u s s i o n on each c la u s e i s g iv e n . t h a n by q u o t a t i o n .

T h is i s

d on e b y p a r a p h r a s e , r a t h e r

The d i s c u s s i o n i s b y no m eans c o m p l e t e .

Some o f t h e p r o p o s i t i o n s r e j e c t e d by t h e - C o n v e n t i o n a r e n e c e s s a r i l y g i v e n , b u t by n o m eans a l l o f them .

No com m ent,

w h a t e v e r , b y t h e a u t h o r a c c o m p a n ie s t h e p r e s e n t a t i o n . T h is s t u d y i s a n o u t g r o w t h o f t h e s e m i n a r c o n d u c t e d by P r o f e s s o r F ra n k H. G a r v e r , U n i v e r s i t y o f S o u t h e r n C a lifo r n ia .

I t was s u g g e s t e d t h e r e t h a t , s i n c e a t h o r o u g h

t r e a t m e n t o f t h e p r o p o s i t i o n s r e j e c t e d b y t h e C o n v e n t io n h a d n e v e r b e e n m ade, s u c h a s u r v e y m ig h t h a v e v a l u e .

The c h i e f s o u r c e s u s e d h a v e "been M a d iso n * s D e b a t e s , Y a t e s ’ M in u te s, and J a c k s o n ’ s J o u r n a l . no o th e r s o u r c e s i n e x i s t e n c e , l y , w e r e e x a m in e d m i n u t e l y , an d c l a s s i f i e d ,

T h er e a r e p r a c t i c a l l y

M a d is o n ’ s D e b a t e s ,

e sp e c ia l­

th e r e j e c t e d p r o p o s itio n s l i s t e d ,

a f t e r w h ic h t h e y w e r e d i s c u s s e d t o p i c a l l y

r a t h e r th an c h r o n o l o g i c a l l y .

I n m o st c a s e s

t h e w isd om or

unw isdom o f r e j e c t i n g a p r o p o s i t i o n was m e n t i o n e d . I n a g e n e r a l way t h e s t u d y show s w h at ou r g o v e r n m e n t m ig h t h a v e b e e n i f c e r t a i n p r o p o s i t i o n s h a d n o t b e e n d e f e a t e d . The a c c e p t a n c e o f c e r t a i n s u g g e s t i o n s w o u ld h a v e p r o d u c e d a u n i o n and a g o v e r n m e n t much w e a k e r t h a n t h e y now a r e ; w h i l e t h e a d o p t i o n o f c e r t a i n o t h e r p r o p o s i t i o n s w o u ld h a v e a b o l i s h e d t h e U n io n o f S t a t e s a l t o g e t h e r a n d p r o d u c e d a c e n t r a l g o v e r n m e n t much s t r o n g e r t h a n t h e p r e s e n t o n e . In a n e g a tiv e se n s e , tio n s r e f le c t s

th is

stu d y o f r e j e c t e d p r o p o s i­

t h e g o o d ju d g m en t o f t h e C o n v e n t io n i n

a d o p t i n g t h o s e w h ic h w e r e a d o p t e d .

I t th r o w s i n t o r e l i e f

t h e c o n s t r u c t i v e w ork o f t h e d e l e g a t e s .

CH&PTER I I GENERAL PROPOSITIONS The o b j e c t o f C h a p te r I I i s t o m e n t io n b r i e f l y some very g en era l p r o p o s itio n s .

In some c a s e s t h i s w i l l be t h e

o n ly trea tm en t o f t h e s e p r o p o s a ls . i trea tm en t o ccu rs l a t e r . A. 1.

In o t h e r c a s e s a f u l l e r

CONVENTION PRO CEDURE

P r o p o sitio n to r e v is e th e A r t ic le s The n e c e s s i t y f o r m u tu a l d e f e n s e d u r i n g t h e . R e v o l u ­

t i o n a r y War had t e n d e d t o d e v e l o p a s p i r i t o f u n i t y among th e c o lo n ie s .

T h is , how ever, e n t i r e l y d isa p p e a r e d d u rin g

t h e r e c o n s t r u c t i o n p e r i o d f o l l o w i n g t h e w a r , when e a c h s t a t e , i n t e n t upon p ro m o tin g i t s o th ers.

own w e l f a r e , d i s r e g a r d e d t h a t o f

S t a t e d i s s e n s i o n , w h ic h r e s u l t e d ,

f i n a l l y becam e

s e r i o u s , a n d , s i n c e C ongress under t h e A r t i c l e s a t i o n co u ld n o t i n t e r f e r e w ith th e a c t i v i t i e s

o f C on fed er­

o f th e s t a t e s ,

^ The f a c t s u p o n w h ic h t h i s t h e s i s i s b a s e d a r e drawn from M a d iso n * s N o t e s o n t h e D e b a t e s i n t h e C o n s t i t u t i o n a l C o n v e n t io n o f 1 7 5 ? ". As i s w e l l known, M a d i s o n ’s w ork i s d iv id e d in t o c h a p t e r s , one fo r e a ch day o f th e c o n v e n t io n . To g i v e a f o o t n o t e r e f e r e n c e f o r e v e r y s t a t e m e n t made i n t h e t h e s i s w o u ld m u l t i p l y t h e number o f s u c h r e f e r e n c e s byyond a l l reason . F r e q u e n t ' m e n t i o n i s made i n t h e t h e s i s t o t h e d a y s u p o n w h ic h p r o p o s i t i o n s w e r e d i s c u s s e d o r d e f e a t e d . T hese d a t e s g i v e t h e r e a d e r c lu e s f o r v e r i f i c a t i o n o r c h e c k ­ in g . F urtherm ore, s i n c e t h e r e a r e s e v e r a l e d i t i o n s o f M a d is o n ’ s D e b a t e s > r e f e r e n c e s t o o n e e d i t i o n b y p a g e s w o u ld be o f no s e r v i c e t o o n e n o t h a v i n g a c c e s s t o t h a t p a r t i c u l a r e d itio n .

t h e s e t h r e a t e n e d t h e new n a t i o n w i t h e c o n o m ic and p o l i t i c a l d isa ste r . In 1 7 8 7 , d r iv e n t o th e v e r g e o f d e s p a ir by t h r e a t s o f d i s u n i o n , f o r e i g n i n t e r f e r e n c e , p r o b le m s o f i n c r e a s i n g u n e m p lo y m e n t, and by h a r d t i m e s , m o st o f t h e s t a t e s

resp ond­

ed t o t h e c a l l o f C o n g r e s s f o r a g e n e r a l c o n v e n t i o n w h ic h was t o m ee t i n P h i l a d e l p h i a f o r t h e p u r p o s e o f r e v i s i n g t h e A r t i c l e s o f C o n fe d e r a tio n in ord er t o ren d er th e f e d e r a l C o n s t it u t io n a d eq u a te t o th e e x i g e n c i e s o f govern m en t.

On

June 15> h o w e v e r , when t h i s p r o p o s i t i o n was l a i d b e f o r e t h e C o n v e n t io n i n t h e New J e r s e y P l a n ,

I t was d e f e a t e d ,

f o r by

t h i s t i m e t h e C o n v e n t io n had d e c i d e d i t was w i s e r t o fra m e a new c o n s t i t u t i o n t h a n t o a t t e m p t t o r e v i s e t h e A r t i c l e s C o n fe d e r a tio n .

of

H i s t o r y h a s v i n d i c a t e d t h e C o n v e n t io n i n

t h i s momentous d e c i s i o n . 2.

P r o p o s i t i o n t o s e c u r e th e a p p r o b a t i o n o f C o n g r e s s f o r t h e w ork o f t h e C o n v e n t io n When, o n A u g u s t 5 1 a t h e C o n v e n t io n a b a n d o n ed t h e

p r i n c i p l e o f u n an im ou s a p p r o v a l o f t h e new C o n s t i t u t i o n and agreed th a t n in e s t a t e s c a tio n ,

sh o u ld be s u f f i c i e n t f o r i t s

r a tifi­

i t a ls o str u c k out th e c la u s e , p r e v io u s ly a c c e p te d ,

w h ic h r e q u i r e d t h a t t h e new C o n s t i t u t i o n r e c e i v e t h e a p p r o v a l o f C ongress b e f o r e b e in g su b m itte d t o th e s t a t e s .

3*

P r o p o sitio n to b lo t out th e s t a t e s

4.

P r o p o s itio n to p r e se r v e th e s t a t e s

in a su b o r d in a te r o le

The o b j e c t o f t h e m e e t i n g o f t h e C o n s t i t u t i o n a l Con­ v e n t i o n was r e a l l y t w o - f o l d :

to r e v is e th e A r t ic le s

C o n f e d e r a t i o n , b u t t o do t h i s

i n s u c h a way a s t o s t r e n g t h e n

th e c e n t r a l govern m en t. o f th e s t a t e s .

The fo r m e r i m p l i e s t h e p r e s e r v a t i o n

The i n t e r p r e t a t i o n o f t h e l a t t e r v a r i e d .

3ome members f e l t sta tes,

of

th at i t

m eant t h e d e s t r u c t i o n o f t h e

but th e m a jo r ity d is a g r e e d w ith t h i s . In t h e d e b a t e s o f t h e C o n v e n tio n , q u e s t io n s p e r t a i n i n g

t o a f e d e r a l s y s t e m v e r s u s a n a t i o n a l s y s t e m becam e o n e o f t h e param oun t i s s u e s .

I t was n a t u r a l t h a t n e i t h e r e x tr e m e

r e c e iv e d w h o le -h e a r te d a p p r o v a l, s in c e p a s t e x p e r ie n c e s w ith a s t r o n g n a t i o n a l g o v e r n m e n t u n d e r t h e B r i t i s h and w i t h t h e more r e c e n t c o n f e d e r a c y o f s e l f - c e n t e r e d ,

jea lo u s s t a t e s

r e v e a le d c le a r l y th e e r r o r s o f ea ch . On June 6 , G eo rge R e a d , o p p o s i n g t h e o l d f e d e r a l s y s ­ te m i n w h ic h t h e c e n t r a l g o v e r n m e n t had b e e n f o r c e d t o r e l y u pon t h e g o v e r n m e n ts o f t h e s t a t e s f o r t h e e n f o r c e m e n t o f its

a c t s , m a in ta in e d t h a t th e s t a t e s

s h o u l d be e n t i r e l y

b lo tte d o u t. On t h e o t h e r h a n d >• H a m il t o n , o n e o f t h e m o st a r d e n t n a tio n a lists

in th e c o n v e n tio n , a d v o c a te d th e a b o lish m e n t o f

t h e s t a t e s a s s e l f - g o v e r n i n g u n i t s , b u t c o n s i d e r e d th em

9 im p o r t a n t a s a d m i n i s t r a t i v e d i v i s i o n s o v e r w h ic h t h e n a t i o n a l governm ent s h o u ld have c o m p le te j u r i s d i c t i o n . K in g was i n f a v o r o f p r e s e r v i n g t h e s t a t e s b u t g i v i n g them a s u b o r d i n a t e r o l e

in th e g e n e r a l s y s te m o f govern m en t.

B r e a r l y , a la r m e d a t e f f o r t s

to d e str o y th e e q u a lity

o f s t a t e r e p r e s e n t a t i o n , p r o p o s e d t h a t t h e map o f t h e U n it e d S t a t e s b e s p r e a d o u t , and t h a t a l l e x i s t i n g b o u n d a r i e s b e e r a s e d and a new p a r t i t i o n o f t h e w h o le be made i n t o t h i r t e e n equal p a r ts . T h ese s u g g e s t io n s t o b l o t ou t th e s t a t e s

or t o red u ce

them t o a s u b o r d i n a t e p o s i t i o n w e r e n o t a d o p t e d by t h e fram ers s i n c e our f e d e r a l sy ste m r e c o g n iz e s

in th e s t a t e s

th e in h er en t r ig h t o f l o c a l s e lf-g o v e r n m e n t. The d e f e a t o f t h e s e tw o p r o p o s i t i o n s was a l l - i m p o r t a n t . The s t a t e s

s i m p l y w o u ld n o t c o n s e n t e i t h e r t o be d e s t r o y e d

o r t o be r e d u c e d t o a d m i n i s t r a t i v e d i s t r i c t s . a lis ts

F or t h e n a t i o n ­

t o h a v e i n s i s t e d up on t h e f i r s t p r o p o s a l w o u ld h a v e

b r o k e n up t h e c o n v e n t i o n . 5.

P r o p o sitio n to adopt th e s t y l e

"The U n i t e d S t a t e s o f

A m e r i c a 11 a s a name f o r t h e g o v e r n m e n t I t had b e e n t h e c u s t o m o f c o l o n i a l p l a n s o f u n i o n and c o n s t i t u t i o n s t o c o n t a i n a s e c t i o n o r an a r t i c l e "The S t y l e " o f t h i s A r tic le s

or t h a t .

e n title d

F or e x a m p l e , A r t i c l e

o f C o n fe d e r a tio n r e a d s :

I o f th e

"The s t y l e o f t h i s

10 c o n f e d e r a c y s h a l l be The U n i t e d S t a t e s o f A m e r i c a ." c la u se

No s u c h

i s t o b e fo u n d i n o u r p r e s e n t c o n s t i t u t i o n , a l t h o u g h

a p r o p o s i t i o n was made i n t h e c o n v e n t i o n t o a d o p t o n e . On A u g u s t 6 , t h e C om m ittee o f D e t a i l r e p o r t e d t h e s o c a l l e d f i r s t d r a f t o f t h e C o n s t i t u t i o n t o th e C o n v en tio n . A r tic le

I o f t h is d r a ft reads

”The S t y l e o f t h e G overnm ent

s h a l l b e , The U n i t e d S t a t e s o f A m e r i c a . 11

I t w i l l be n o t i c e d

t h a t t h e s t y l e p r o v i s i o n i n t h e a r t i c l e g a v e a name t o t h e U n io n , w h i l e t h e c o m p a r a b le p r o v i s i o n o f t h e f i r s t d r a f t o f t h e C o n s t i t u t i o n g a v e t h e same name t o t h e g o v e r n m e n t o f t h e U n io n . A r tic le

I o f t h e r e p o r t o f t h e C om m ittee o f D e t a i l ,

d e a l i n g w i t h t h e s t y l e o f t h e p r o p o s e d new g o v e r n m e n t , was a d o p t e d by t h e c o n v e n t i o n on A u g u s t 7 > o n l y t o b e s t r i c k e n o u t by t h e C om m ittee o f S t y l e

in i t s

r e p o r t made S e p te m b e r 1 2 .

The c l a u s e d o e s n o t a p p e a r i n t h e c o m p l e t e d C o n s t i t u t i o n . W h erever t h e p h r a s e , stitu tio n ,

it

”The U n i t e d S t a t e s ” o c c u r s

i n t h e Con­

r e f e r s t o t h e n a t i o n o r t h e U n io n and n o t t o

t h e g o v e r n m e n t o f t h e U n io n . 6.

P r o p o s i t i o n t o e s t a b l i s h ’a n a t i o n a l g o v e r n m e n t W h ile t h e m akers o f t h e C o n s t i t u t i o n c a r r i e d t h r o u g h

t h e i r work on t h e new s y s t e m , t h e y w e r e e v e r m i n d f u l o f t h e d a y when t h e f i n a l r e s u l t o f t h e i r l a b o r s

i n t h e fo r m o f a

new c o n s t i t u t i o n was t o be p r e s e n t e d t o t h e s t a t e s

fo r

r a tific a tio n .

A c c o r d i n g l y , when t h e r e s o l u t i o n t h a t a

" n a t i o n a l g o v e r n m e n t o u g h t t o "be e s t a b l i s h e d 11 was d i s c u s s e d , i t se e m e d t o t h e d e l e g a t e s u n w i s e t o p r e s e n t f o r r a t i f i c a t i o n a new c o n s t i t u t i o n

i n w h ic h t h e g o v e r n m e n t was l a b e l e d

" n a t i o n a l , 11 a s t h e word w o u ld g i v e t h e u n f o r t u n a t e i m p r e s s i o n t h a t t h e o l d C o n f e d e r a c y had c e a s e d to , e x i s t .

As t h i s m ig h t

a r o u s e a n i m o s i t y , t h e word " n a t i o n a l " was s t r i c k e n o u t o f t h e C o n s t i t u t i o n i n t w e n t y - e i g h t p l a c e s , and t h e w ords g o v e r n m e n t o f t h e U n it e d S t a t e s " w e r e i n s e r t e d .

" th e

As t h e te r m

was n e v e r r e p l a c e d , t h e C o n s t i t u t i o n o f t h e U n i t e d S t a t e s d o es n o t c a l l f o r a c e n t r a l governm ent o r a n a t i o n a l g o v e r n ­ ment . D u r in g t h e d e l i b e r a t i o n s o f t h e c o n v e n t i o n , n e i t h e r t h e f e d e r a l i s t s n or th e n a t i o n a l i s t s g a in e d c o m p lete suprem ­ acy.

As a r e s u l t ,

t h e new s y s t e m o f g o v e r n m e n t was n e i t h e r

a f e d e r a l nor a n a t i o n a l s y s te m , but an a c c e p t a b le m ix tu r e o f b oth . One o f t h e m ost f o r t u n a t e f e a t u r e s o f t h e C o n s t i t u t i o n i s t h a t t h e m a j o r i t y o f d e c i s i o n s w e r e made by m u tu a l c o n ­ c e s s i o n s on t h e p a r t o f t h e i n d i v i d u a l s o r f a c t i o n s . it

Thus

r e p r e s e n t s t h e i n t e r e s t s and c l a i m s o f no p a r t i c u l a r

d e l e g a t e o r g r o u p o f th e m , n o r o f a n y p a r t i c u l a r s t a t e o r group o f s t a t e s , n or o f any p a r t i c u l a r s e c t i o n o f t h e U n ite d S ta tes .

A l l f a c t i o n s had b e e n o b l i g e d t o s a c r i f i c e p a r t o f

t h e i r demands f o r t h e s a k e o f t h e common g o o d .

12 B. 7«

FRAMEWORK OF THE CONSTITUTION

Form o f t h e C o n s t i t u t i o n The C o n s t i t u t i o n w h ic h was s i g n e d b y t h e c o n v e n t i o n on

S e p te m b e r 1 1 , 1 7 8 7 > c o n t a i n s s e v e n m a in d i v i s i o n s c a l l e d " a r tic le s .” tic le s

T hese a r e s u b d iv id e d in t o s e c t i o n s .

and s e c t i o n s a r e n u m b e re d .

B o th a r ­

The f i r s t a r t i c l e r e l a t e s

to th e l e g i s l a t i v e d ep artm en t; th e secon d , to th e e x e c u t i v e ; th e th ir d , to th e ju d ic ia r y .

A r tic le

IV d e a l s w i t h t h e r e l a ­

t i o n s o f t h e c e n t r a l and s t a t e g o v e r n m e n t s t o e a c h o t h e r . A r t i c l e V e x p l a i n s t h e p r o c e d u r e s f o r am en d in g t h e c o n s t i t u ­ tio n .

A r t i c l e V I c o v e r s f o u r u n r e l a t e d s u b j e c t s , n a m e ly :

n a t i o n a l d e b t , t h e su p rem e law o f t h e l a n d , o a t h o f o f f i c e , and r e l i g i o u s t e s t . c a tio n .

A r t i c l e V I I e x p l a i n s t h e mode o f r a t i f i ­

B e sid e s t h i s ,

t h e C o n s t i t u t i o n i s p r e f a c e d by a n

e n a c t i n g c l a u s e , now c a l l e d t h e P r e a m b le . 8.

The f i r s t w o r d in g o f t h e P r e a m b le I n t h e P re a m b le o f t h e C o n s t i t u t i o n i s

th a t

th e statem en t

"we, t h e p e o p l e o f t h e U n i t e d S t a t e s , ” f o r c e r t a i n

r e a so n s h e r e in en u m erated ,

”do o r d a i n and e s t a b l i s h t h i s

C o n s t i t u t i o n f o r th e U n ite d S t a t e s o f A m e r ic a .” O r ig in a lly th is

in t r o d u c t o r y s e n t e n c e , as d r a f t e d by

t h e C om m ittee o f D e t a i l , was r a d i c a l l y d i f f e r e n t .

I t began,

”We, t h e p e o p l e o f t h e S t a t e s o f New H a m p s h ir e > M a s s a c h u s e t t s ,

13 e tc .”

A f t e r a c o m p lete l i s t

”d o o r d a i n , d e c l a r e ,

o f th e s t a t e s

came t h e w ords

and e s t a b l i s h t h e f o l l o w i n g c o n s t i t u ­

t i o n f o r t h e g o v e r n m e n t o f o u r s e l v e s and o u r p o s t e r i t y . ” Among t h e s t a t e s named a s h e l p i n g t o make t h e Con­ s t i t u t i o n was Rhode I s l a n d , n o t a member o f t h e C o n v e n t i o n . M oreover, th e C o n s t it u t io n p r o v id e d th a t i t s by n i n e s t a t e s th e s ta te s

be s u f f i c i e n t

so r a t if y in g .

for it s

r a tific a tio n

e s t a b lis h m e n t betw een

The o r i g i n a l w o r d in g o f t h e P r e ­

am b le named o n e s t a t e n o t i n t h e C o n v e n t io n and f o u r t h a t m ig h t h a v e b e e n o m i t t e d from t h e u n i o n a l t o g e t h e r .

- To a v o i d

a d o u b l e f a l s e h o o d , and f o r no o t h e r r e a s o n , t h e C om m ittee on S t y l e r e w o r d e d t h e P r e a m b le a s we h a v e i t 9.

P r o p o s itio n to 2 st itu tio n

in c lu d e a B i l l o f R ig h ts

to d a y . i n t h e C on-

One s e r i o u s e r r o r made by t h e f r a m e r s o f t h e C o n s t i ­ t u t i o n was t h e i r f a i l u r e t o s e e t h e im p o r t a n c e o f a f o r m a l B i l l o f R i g h t s and t o

i n c l u d e o n e in. t h e d o c u m e n t .

L ater

t h e a t t a c k o f t h e p e o p l e o f t h e s t a t e s o n t h e new s y s t e m o f g o v e r n m e n t was l e v e l e d a t t h i s o f p ersonal lib e r t ie s , o f th e s t a t e s

o m issio n o f prop er g u a ra n tees

and t h e r i g h t o f t r i a l by j u r y .

E ig h t

s i g n e d o n l y on c o n d i t i o n t h a t t h e s e f u n d a m e n t a l

r i g h t s be add ed i n t h e fo r m o f am en d m en ts.

T h u s , w i t h i n two

2 T h is im p o r t a n t s u b j e c t i s t r e a t e d m ore f u l l y C h a p te r IX o f t h i s t h e s i s .

in

14 y e a r s a f t e r t h e C o n s t i t u t i o n had b e e n p r e s e n t e d t o t h e s t a t e s f o r a p p r o v a l , t e n am endments w e r e a d d ed and t h e C o n s t i t u t i o n becam e a t l a s t t h e g r e a t d o c u m e n t (o f p e r s o n a l l i b e r t y . 1 0 . P r o p o s i t i o n t o i n c l u d e n o m ethod o f amendment D e f i n i t e p r o v i s i o n f o r am en d in g t h e C o n s t i t u t i o n

in

a r e g u l a r and o r d e r l y manner i s p r o v i d e d i n A r t i c l e V. th e A r t ic le s

W h ile

o f C o n f e d e r a t i o n c o u l d n o t be a l t e r e d e x c e p t

w i t h t h e c o n s e n t o f C o n g r e s s and a l l o f t h e s t a t e s ,

th e

p r e s e n t C o n s t i t u t i o n c a n b e amended w i t h t h e c o n s e n t o f t h r e e - f o u r t h s o f th e m .

As t h e mode f o r m o d i f y i n g t h e Con­

s t i t u t i o n grew s t e a d i l y more e l a b o r a t e and t h e e a s e w i t h w h ic h amendments c o u l d b e e f f e c t e d

in c r e a se d ,

fear l e s t

th e

p o w er o f am endm ents be s o g r e a t a s t o make i t p o s s i b l e t o add t o ,

r e str ic t,

o r e v e n t o t a k e away p o w e r s g r a n t e d t o t h e

C ongress o r l e f t t o th e s t a t e s by t h e C o n s t i t u t i o n , se r io u s r e s is ta n c e .

When m o t i o n s t o l i m i t t h e p o w er o f

amendment by a d d i n g a l i s t

o f p r o v iso s f a i l e d ,

B r e a r l y moved t h a t t h e w h o le a r t i c l e proposal to

le d to

Sherman and

be s t r ic k e n o u t .

T h is

i n c l u d e i n t h e C o n s t i t u t i o n no m eth od o f am end­

ment was d e f e a t e d by a v o t e o f e i g h t t o t h r e e . A m odern C o n s t i t u t i o n w i t h o u t a m ethod o f amendment is u n th in k a b le .

N e ed ed c h a n g e s c o u l d be made i n s u c h a

C o n s t i t u t i o n o n l y by s u c c e s s f u l r e v o l u t i o n .

It

is very

s t r a n g e t h a t a p r o p o s i t i o n o p e n in g t h e d o o r to su c h a danger s h o u l d h a v e b e e n made by a man o f S h erm a n ! s c a l i b e r .

15 1 1 . The f i r s t w o r d in g o f t h e s c h e d u l e

(now A r t i c l e V I I o f

th e C o n stitu tio n ) The m eth o d o f r a t i f i c a t i o n o f am endm ents u n d e r t h e A r t i c l e s o f C o n f e d e r a t i o n r e q u i r e d t h e u n a n im o u s c o n s e n t o f a l l th e s t a t e s .

T h is p l a n ,

in c o rp o ra ted in th e r e s o lu t io n s

o f t h e V i r g i n i a P l a n s , w a s^ a t- f i r s t a c c e p t e d .

F i n a l l y , how­

e v e r , a s t h e c o n v e n t i o n a b a n d o n ed o n e a f t e r a n o t h e r o f t h e p r in c ip le s o f th e A r t ic le s ,

t h e m a j o r i t y o f d e l e g a t e s deemed

i t w i s e t o a v o i d t h e n e c e s s i t y o f t h e u n anim ou s a p p r o v a l o f th e s t a t e s .

B e f o r e t h e c o n v e n t i o n made a f i n a l d e c i s i o n t h a t

n i n e s t a t e s w o u ld be s u f f i c i e n t t o e s t a b l i s h t h e new C o n s t i ­ t u t i o n b etw een th e s t a t e s

s o r a t i f y i n g t h e sa m e , m o t i o n s t h a t

t e n and t h i r t e e n b e s u b s t i t u t e d e d , and t h e o t h e r s f o r s i x , The g o o d judgm ent o f soon

i n s t e a d o f n in e w ere d e f e a t ­

s e v e n , an d e i g h t w e r e d r o p p e d . t h e m a j o r i t y i n t h i s c a s e was

e v i d e n t , a s tw o s t a t e s r e f u s e d t o r a t i f y u n t i l a f t e r

th e o r g a n iz a t io n o f th e n a t i o n a l govern m en t. C.

FRAMEWORK

1 2 . P r o p o s i t i o n t o name t h e

OF THE GOVERNMENT t h r e e d e p a r t m e n t s i n t h e Con­

stitu tio n U n til n ear th e c lo s e o f th e c o n v e n tio n , posed to p la c e in th e C o n stitu tio n a d e f i n i t e

i t was p r o ­ sta tem en t

nam ing t h e t h r e e d e p a r t m e n t s among w h ic h t h e p o w e r s o f t h e

16 c e n t r a l governm ent w ere to be d i s t r i b u t e d .

No s u c h s t a t e m e n t

a p p e a r s i n t h e C o n s t i t u t i o n , t h e C om m ittee on S t y l e h a v i n g o m itte d i t

fr o m i t s

r e p o r t made on S e p te m b e r 1 2 .

t h a t t h e C o n v e n t io n a c t e d u n w i s e l y i n t h i s

I t seem s

case.

1 3 . To e s t a b l i s h a p l u r a l e x e c u t i v e U nder t h e A r t i c l e s e x e c u t iv e d ep artm en t,

o f C o n fe d e r a tio n

but a l l p la n s

v e n t io n p r o v id e d f o r o n e .

p lu r a l e x e c u tiv e . e x e c u tiv e .

in tro d u ced in t o th e

Con­

T hese p l a n s . v a r i e d g r e a t l y , h o w ev er.

The V i r g i n i a P l a n l e f t d ep artm en t i n d e f i n i t e .

t h e r e had b e e n no

t h e number i n t h e e x e c u t i v e

The New J e r s e y P l a n .p r o v i d e d f o r a

The H a m il t o n p l a n recomm ended a s i n g l e

R a n d o lp h , P a t e r s o n , W i l l i a m s o n , and F r a n k l i n a l l

f a v o r e d a p l u r a l e x e c u t i v e a s a means o f p r e v e n t i n g some am­ b i t i o u s s i n g l e e x e c u t i v e fr o m t a k i n g a d v a n t a g e o f h i s p o s i t i o n t o becom e a m onarch o r a d i c t a t o r . In s p i t e o f c o n s id e r a b le s u p p o r t, W illia m s o n 's p la n f o r an e x e c u t i v e pow er v e s t e d t a k e n fro m d i s t r i c t s

in th r e e se p a r a te p erso n s

o f t h e S o u t h , M id d le S t a t e s , and New

E n g la n d , was r e j e c t e d . A f t e r y e a r s o f e x p e r i e n c e , we r e a l i z e of th is

th a t th e v a lu e

e le m e n t o f u n i t y i n t h e e x e c u t i v e d ep artm en t can

n o t be o v e r - e s t i m a t e d , and t h a t a d i v i s i o n o f t h e r e s p o n ­ sib ility

o f t h e o f f i c e w o u ld h a v e r e s u l t e d

in in e f f ic ie n c y .

H i s t o r y had p r o v e d p l u r a l e x e c u t i v e s t o be w e a k .

The s i n ­

g l e e x e c u t i v e as p r o v i d e d f o r i n o u r C o n s t i t u t i o n h a s b e e n

IT a great su ccess.

We may a l l r e j o i c e t h a t t h e c o n s t i t u t i o n a l

c o n v e n tio n d e f e a t e d th e p r o p o sa l f o r a p lu r a l e x e c u t iv e . 1 4 . To e s t a b l i s h a u n i c a m e r a l l e g i s l a t u r e A l a r g e m a j o r ity approved r e s o l u t i o n

I I I in th e

V i r g i n i a P l a n w h ic h p r o p o s e d t h a t t h e N a t i o n a l L e g i s l a t u r e o u g h t t o c o n s i s t o f two b r a n c h e s .

Two o f t h e d e l e g a t e s ,

P a t e r s o n and L a n s i n g , n o t w i s h i n g t o d e p a r t fro m t h e p l a n o f t h e e x i s t i n g C o n f e d e r a c y , made s e p a r a t e p r o p o s a l s t h a t t h e l e g i s l a t i v e p ow er be v e s t e d

in th e U n ite d S t a t e s

in C ongress.

P a t e r s o n * s p r o v i s i o n , w h ic h was i n c l u d e d i n t h e 'N e w J e r s e y P l a n , was d e f e a t e d when t h e d e l e g a t e s d e c i d e d t o c o n f i n e t h e m s e l v e s t o t h e R an d o lp h r e s o l u t i o n s On Jun e 2 0 , f i v e d a y s l a t e r ,

in th e V ir g in ia P la n .

L a n s i n g * s m o t i o n was d e f e a t e d

by v o t e s o f s e v e n t o f o u r . P r i o r t o t h e C o n s t i t u t i o n a l C o n v e n t io n c o u n t l e s s e x a m p le s o f u n i c a m e r a l l e g i s l a t u r e s had e x i s t e d .

At t h a t

t i m e , h o w e v e r , t h e r e was a g e n e r a l r e a c t i o n i n f a v o r o f two h ou ses.

T h is a c c o u n t s f o r t h e p r o v i s i o n f o r a b i c a m e r a l

l e g i s l a t u r e made b y t h e C o n v e n t i o n . p r o b a b ly h ave su p p o rte d th e d e l e g a t e s

M a j o r i t y o p i n i o n w o u ld in d e f e a t in g th e p r o ­

p o s a l f o r a N a tio n a l L e g i s l a t u r e o f one h o u se o n l y . 1 5 * To e s t a b l i s h s e v e r a l su p rem e c o u r t s . 1 6 . To e s t a b l i s h n o i n f e r i o r f e d e r a l c o u r t s The n i n t h p r o v i s i o n o f t h e V i r g i n i a P l a n p r o p o s e d t h e

18 e s ta b lis h m e n t o f a t h i r d d ep artm en t, a N a tio n a l J u d ic ia r y c o n s i s t i n g o f on e o r more su prem e c o u r t s and s e v e r a l i n f e r i o r tr ib u n a ls. R a n d o lp h and a fe w o t h e r s u r g e d t h e e s t a b l i s h m e n t o f s e v e r a l su p rem e c o u r t s b e c a u s e o f t h e g r e a t d i s t a n c e t h e j u d g e s w o u ld h a v e t o t r a v e l i f t h e r e was o n l y o n e c o u r t . N e v e r t h e l e s s , on J u n e 4 , t h e C o n v e n t io n c a s t i t s

v o t e in

f a v o r o f o n e su p rem e c o u r t , a l o n e . The p r o p o s a l t h a t i n f e r i o r c o u r t s o r t r i b u n a l s be e s t a b l i s h e d o c c a s i o n e d a m ore v i g o r o u s c o n t r o v e r s y . B u t l e r , and Sherman f e l t

R u tle d g e ,

t h a t t h e s e c o u r t s w o u ld e n c r o a c h

upon t h e a u t h o r i t y o f t h e s t a t e

co u rts.

T h ese, th ey f e l t ,

s h o u l d b e g i v e n t h e p r o p e r j u r i s d i c t i o n w i t h p r o v i s i o n made f o r a r i g h t o f a p p e a l t o t h e Supreme C o u r t .

On R u t l e d g e fs

m o tio n , th e c la u s e p r o p o sin g t h a t th e e s ta b lis h m e n t o f i n f e r ­ i o r t r i b u n a l s be s t r i c k e n o u t , was d e f e a t e d .

T h is a f f o r d e d

g r e a t s a t i s f a c t i o n t o t h o s e who c o n s i d e r e d t h e i n f e r i o r f e d e r a l c o u r t s a means o f r e n d e r i n g t h e F e d e r a l J u d i c i a r y e ffe c tiv e

in s p i t e o f l o c a l or s t a t e p r e j u d i c e s .

T h is b r i e f

t r e a t m e n t o f t h e p r o p o s i t i o n t o e s t a b l i s h s e v e r a l su p rem e c o u r t s and n o f e d e r a l c o u r t s w i l l be g i v e n a f u l l e r t r e a t m e n t i n C h a p te r V I I o f t h i s t h e s i s . ^

^ I n f r a , pp . 10 4 -1 0 5 .

19 17* P r o p o s i t i o n t o e s t a b l i s h a n a d v i s o r y c o u n c i l f o r t h e E x e c u tiv e S e v e r a l a t t e m p t s w ere made t o e s t a b l i s h a n a d v i s o r y c o u n c il fo r th e e x e c u tiv e #

b u t no s u g g e s t i o n was c o n s i d e r e d

s e r i o u s l y u n t i l a few w e ek s b e f o r e t h e c l o s e o f t h e c o n v e n ­ tio n . 2l On A u g u s t 2 0 M o rr is p r e s e n t e d a n e l a b o r a t e p l a n f o r s u c h a c o u n c i l , w h o se d u t y was t o a d v i s e t h e e x e c u t i v e

in

m a t t e r s w h ic h c o n c e r n t h e c o n d u c t o f p u b l i c a f f a i r s w h ic h t h e p r e s i d e n t c h o s e to la y b e f o r e th em . th is

The p e r s o n n e l o f

c o u n c i l was t o c o n s i s t o f t h e P r e s i d e n t o f t h e S e n a t e ,

t h e S p e a k e r o f t h e H ouse o f R e p r e s e n t a t i v e s , t h e C h i e f J u s t i c e o f t h e Supreme C o u r t , and t h e p r i n c i p a l o f f i c e r s

in th e

r e s p e c t i v e D e p a r tm e n ts o f F o r e i g n A f f a i r s , D o m e s t i c A f f a i r s , War, M a r in e , and F i n a n c e . A l t h o u g h e a c h member o f t h e c o u n c i l was t o be r e s p o n ­ sib le

f o r h is o p in io n o f a f f a i r s

r e l a t in g to h is p a r t ic u la r

d e p a r t m e n t , t h i s w o u ld n o t r e l i e v e t h e P r e s i d e n t o f t h e r e s p o n s i b i l i t y f o r t h e m e a s u r e s w h ic h he a d o p t e d . The w h o le p r o p o s i t i o n was r e f e r r e d t o t h e C om m ittee o f D e t a i l , w h ic h r e p o r t e d i t

tw o d a y s l a t e r ,

sim p lifie d

i n form ,

^ T h e r e w e r e tw o men i n t h e c o n v e n t i o n by t h e name o f M o r r i s — R o b e r t and G o u v e r n e u r . The fo r m e r n e v e r made a sp eech . S i n c e a l l r e f e r e n c e s made i n t h i s t h e s i s r e f e r t o G o u v e rn eu r M o r r i s , i t w i l l not be n e c e s s a r y t o r e p e a t h i s g i v e n name e a c h t i m e G o u v e rn eu r M o r r is i s q u o t e d o r m e n t i o n e d .

20 bu t unchanged in c o n t e n t .

T h is p r o p o s i t i o n , n o t f a v o r e d by

t h e c o m m it t e e w h ic h had c o n s i d e r e d i t , - was n e v e r v o t e d u p o n . On S e p te m b e r 7* M ason, f e a r i n g t h e m i s u s e o f t h e p o w ers o f a p p o in t m e n t c o n f e r r e d upon t h e P r e s i d e n t , p r o p o s e d t h a t s i x men, tw o e a c h fr o m t h e E a s t e r n , S o u t h e r n and M id d le S ta tes,

be c h o s e n by t h e S e n a t e t o a c t a s a p r i v y c o u n c i l

f o r t h e P r e s i d e n t f o r a te r m o f s i x y e a r s . A f t e r t h e d e f e a t o f t h i s m o t i o n , no f u r t h e r m e n t io n was made o f an e x e c u t i v e c o u n c i l a l t h o u g h im p o r ta n t- men, s u c h a s M a d is o n , F r a n k l i n , D i c k e n s o n , and E l l s w o r t h f a v o r e d i t . Custom a n d p r a c t i c e h a s g i v e n t o t h e P r e s i d e n t s u c h a c o u n c i l , n a m ely , t h e c a b i n e t . 1 8 . To e s t a b l i s h a C o u n c i l o f R e v i s i o n

5

A C o u n c i l o f R e v i s i o n was a l s o s u g g e s t e d .

T h is was t o

c o n s i s t o f t h e e x e c u t i v e and a c o n v e n i e n t number o f t h e N a t i o n a l J u d i c i a r y , who w e r e t o a c t

in th e c a p a c it y o f a

c h e c k upon t h e l e g i s l a t i v e d e p a r t m e n t .

They w e r e t o b e g i v e n

a u t h o r i t y t o e x a m in e e v e r y a c t o f t h e N a t i o n a l L e g i s l a t u r e b efo re i t of th is

c o u l d becom e o p e r a t i v e .

F u rth erm ore, th e d i s s e n t

C o u n c i l am ounted t o a r e j e c t i o n u n l e s s t h e a c t o f t h e

l e g i s l a t u r e was a g a i n p a s s e d u p on "by ____ o f t h e members o f each b r a n c h ."

5 T h is s u b j e c t

is trea ted

i n C h a p te r I I I a l s o .

21 T h is p r o p o s i t i o n o f t h e C o u n c il o f R e v is io n c o n fu s e d t h e C o n v e n tio n .

I t was a c u r i o u s m i x t u r e o f e x e c u t i v e v e t o

and j u d i c i a l r e v i e w .

Out o f i t ,

v e t o pow er o f t h e P r e s i d e n t . opposed b e c a u se i t

t h e C o n v e n t io n e v o l v e d t h e

The C o u n c i l o f R e v i s i o n was

c o m b in e d t h e f u n c t i o n s o f two d e p a r t m e n t s

m eant t o b e s e p a r a t e d , and a l s o b e c a u s e i t a l l o w e d r e v ise

ju d g es to

l a w s , t h e c o n s t i t u t i o n a l i t y o f w h ic h t h e y m ig h t b e

c a l l e d t o p a s s upon l a t e r . B r o u g h t b e f o r e t h e C o n v e n t io n u p o n f o u r s e p a r a t e o c c a ­ sio n s,

i t was p o s t p o n e d o r d e f e a t e d e a c h t i m e .

t h i s p r o p o s i t i o n was a n e x c e e d i n g l y w i s e a c t .

The d e f e a t o f

CHAPTER I I I THE EXECUTIVE DEPARTMENT U n d e r'th e A r t i c l e s

o f C o n f e d e r a t i o n a n y p o w e r s w h io h

w o u ld n o t be c o n s i d e r e d p e c u l i a r t o t h e e x e c u t i v e d e p a r t m e n t w ere c o n f e r r e d upon C o n g r e ss .

As t h i s p l a c e m e n t o f pow er had

p r o v e d t o be o n e o f t h e w e a k n e s s e s o f t h e C o n f e d e r a c y , t h e C o n v e n t io n r e a d i l y a g r e e d a s t o t h e n e c e s s i t y o f e s t a b l i s h i n g i n t h e new s y s t e m o f g o v e r n m e n t an e x e c u t i v e d e p a r t m e n t d i s ­ t i n c t fro m t h e l e g i s l a t i v e .

The p r o p o s a l t o t h a t e f f e c t

in

R a n d o lp h fs o r i g i n a l r e s o l u t i o n s ^ met w i t h prom pt and u n an im ou s a p p r o v a l.

T h e r e was n o t , h o w e v e r , t h e sam e u n a n i m i t y a s t o

o t h e r p r o b le m s c o n c e r n i n g t h e e s t a b l i s h m e n t o f t h i s d e p a r t ­ m en t.

In f a c t ,

t h e c r e a t i n g o f t h e e x e c u t i v e d e p a r t m e n t was

o n e o f t h e m o st d i f f i c u l t

o f t h e i r p r o b le m s.

F or m onths

p e r m a n en t s e t t l e m e n t o f many o f t h e i m p o r t a n t d e t a i l s

seem ed

i m p o s s i b l e , a s d e c i s i o n s , p r e v i o u s l y m ade, w e r e s t r u c k o u t t im e a f t e r t i m e , and t h e s u b j e c t s r e o p e n e d f o r d i s c u s s i o n . One o f t h e o b s t a c l e s t o t h e f i n a l s o l u t i o n o f som e q u e s t i o n s was t h a t many p r o p o s a l s w e r e won o r l o s t b y a v e r y c l o s e m a r g i n , and t h e r e s u l t s

c o u ld be changed by c o n v in c in g

o n e o r tw o o f t h e v o t e r s o f t h e i r e r r o r .

F or i n s t a n c e , on

th e q u e stio n o f e n tr u stin g th e e x e c u tiv e a u th o r ity to a s i n g l e p e r so n or t o t h r e e p e r s o n s ,

t h e C o n v e n t io n was a l m o s t

1 The V i r g i n i a P l a n , w r i t t e n by s e v e r a l d e l e g a t e s b u t p r e s e n t e d t o t h e C o n v e n t io n by R a n d o lp h .

23

.

e q u a l l y - d i v i d e d . - The p l a n f o r a p l u r a l e x e c u t i v e c o u n c i l a l s o was p a s s e d by a m a r g in o f o n l y o n e v o t e . 1.

The p r o p o s i t i o n r e l a t i n g t o t h e e x e c u t i v e ! s s t y l e and title

2.

To c a l l t h e c h i e f e x e c u t i v e One o f t h e l e s s

"governor”

im p o r t a n t p r o p o s i t i o n s t h a t d i d n o t

g e t i n t o t h e C o n s t i t u t i o n c o n c e r n e d t h e s t y l e and t i t l e th e e x e c u tiv e .

of

In H a m i l t o n ^ p l a n o f g o v e r n m e n t , t h e e x e c u ­

t i v e was r e f e r r e d t o a s t h e

" g o v e r n o r ," but th e t i t l e

was

i g n o r e d i n t h e d i s c u s s i o n s o f t h e C om m ittee o f t h e W hole and i n t h e r e p o r t o f t h e C o m m ittee o f D e t a i l . posed th a t th e s t y l e

o f th e e x e c u tiv e b e ,

The l a t t e r p r o ­ "The P r e s i d e n t o f

t h e U n it e d S t a t e s o f A m e r i c a ," and h i s t i t l e E x c e lle n c y ." title s

be,

"His

As t h e d e l e g a t e s w e r e a c c u s t o m e d t o r e g a r d

f o r g o v e r n m e n t o f f i c e r s a s n e c e s s a r y marks o f d i s t i n c ­

t i o n , t h e y g a v e t h e s e t h e i r u n anim ou s a p p r o v a l . s t y l e and t h e t i t l e

B o th t h e

a p p e a r e d i n a C o m m ittee r e p o r t o n

S e p te m b e r 4 , b u t i n t h e end w ere d r o p p e d b y t h e C o m m ittee on S ty le . The m anner o f r e f e r r i n g t o t h e P r e s i d e n t was s e t t l e d j u s t b e f o r e t h e i n a u g u r a t i o n o f W a s h in g t o n , a f t e r b o t h B o u s e s o f C o n g r e s s had a p p o i n t e d c o m m i t t e e s t o d e c i d e t h i s q u e s tio n .

The S e n a t e * s c h o i c e had b e e n ,

"His H i g h n e s s , t h e

24 P r e s i d e n t o f t h e U n i t e d S t a t e s o f A m e r ic a and t h e P r o t e c t o r of th e ir L ib e r t ie s .” a g ree to t h i s

title ,

The H ouse o f R e p r e s e n t a t i v e s w o u ld n o t w h ic h s o u n d e d t o them m o n a r c h i c a l .

i n g r e a c h e d no c o n c l u s i o n when t h e P r e s i d e n t s a d d r e s s was g i v e n , t h e H ouse s e n t o f t h e U n ite d S t a t e s . "

To t h i s

its

fir st

r e p ly to th e

sim p le t i t l e

H av­

in a u g u r a l

" P r e sid e n t

th e S en ate l a t e r

agreed. 3.

To r e q u i r e a r e s i d e n c e q u a l i f i c a t i o n o f t w e n t y - o n e y e a r s When t h e q u a l i f i c a t i o n s n e c e s s a r y f o r t h e f u t u r e

e x e c u t i v e w e r e c o n s i d e r e d , many w e r e p r o p o s e d w h ic h d i d n o t g e t in to th e C o n s titu tio n .

Among t h e s e was a r e s i d e n c e q u a l ­

i f i c a t i o n o f tw en ty-on e y e a r s .

T h is r e q u i r e m e n t , p r o p o s e d on

A ugust 22 by a s p e c i a l c o m m itte e , p roved a c c e p t a b l e a t th e t i m e , b u t was l a t e r d i s c a r d e d by t h e C om m ittee o f E l e v e n i n fa v o r o f a fo u r te e n -y e a r r e s id e n c e q u a l i f i c a t i o n . w i t h t h e w ord " r e s i d e n t " c h a n g e d t o

The l a t t e r ,

" i n h a b i t a n t , " was p l a c e d

in th e C o n s t itu tio n . The r e j e c t i o n o f t h e t w e n t y - o n e y e a r r e s i d e n c e r e ­ q u irem en t f o r t h a t o f f o u r t e e n y e a r s

is

o f q u e stio n a b le v a lu e .

So f a r e v e r y c a n d i d a t e n o m in a te d f o r t h e o f f i c e

o f P r e sid e n t

has been a b l e t o c la im th e U n ite d S t a t e s a s h i s

l e g a l d o m i­

c ile

fo r a t le a s t

tw en ty -o n e y e a r s .

25 4.

To r e q u i r e l a n d e d p r o p e r t y q u a l i f i c a t i o n f o r t h e P r e s i d e n t

5«

D eb tors to be d i s q u a l i f i e d C o n flic tin g c la s s

i n t e r e s t s w e r e much i n e v i d e n c e w h en ,

i n J u l y and A u g u s t , t h e l a n d - o w n e r s p e r s i s t e d

in e f f o r t s

im p o se p r o p e r l y q u a l i f i c a t i o n s u p o n g o v e r n m e n t o f f i c e r s upon v o t e r s .

Any s u c h p r o p o s a l s w e r e r e s i s t e d

to or

s t u b b o r n l y by

t h e c o m m e r c ia l and m a n u f a c t u r i n g c l a s s e s , who w e r e d e t e r m i n e d n o t to le a v e t h e i r

in te r e sts

c l a s s , and a t t e m p t s t o a d d , ific a tio n s

in th e ca re o f th e la n d e d -p r o p e r ty “l a n d e d p o s s e s s i o n s 11 t o t h e q u a l ­

o f t h e P r e s i d e n t w e r e d e f e a t e d on J u l y 2 6 and a g a i n

on A u g u s t 1 0 . O th e r e f f o r t s

to c o n tr o l th e f in a n c ia l s ta tu s o f th e

c a n d i d a t e s f o r t h e p r e s i d e n c y w e re made on J u l y 2 6 , b u t a m o t io n t o d i s q u a l i f y p e n s i o n e r s , and a n o t h e r t o d i s q u a l i f y p e r so n s h a v in g

u n s e t t le d accou n ts

6 .The P r e s i d e n t s

term :

th ree, s ix ,

b oth f a i l e d . seven , e ig h t,

e le v e n ,

f if t e e n years 7*

The P r e s i d e n t t o h a v e l i f e

ten u re

The q u e s t i o n o f t h e t e r m f o r w h ic h t h e P r e s i d e n t s h o u l d b e e l e c t e d was among t h e m ost d i f f i c u l t p r o b le m s f a c e d by t h e C o n v e n t i o n , and was n o t f i n a l l y s e t t l e d u n t i l S e p te m b e r 6 , n e a r t h e c l o s e o f t h e C o n v e n tio n .

The d i f f e r e n t p e r i o d s

o f te n u r e s u g g e s t e d a t one tim e or a n o th e r w ere t h r e e ,

six ,

26 seven , e ig h t, even l i f e

e l e v e n , and f i f t e e n y e a r s , r e s p e c t i v e l y , and

t e n u r e p r o p o s e d on J u n e 18 and a g a i n o n J u l y 1 7

r e c e iv e d a len g th y c o n sid e r a tio n b e fo re Each o f t h e s e p e r i o d s had i t s

i t w as d e f e a t e d .

c h a m p io n , b u t t h e o n e t h a t

fo u n d m ost f a v o r w i t h t h e d e l e g a t e s was t h e s e v e n - y e a r t e r m . Members o f t h e C o n v e n t io n i n g e n e r a l a p p r o v e d t h i s s e v e n - y e a r t e r m b e c a u s e i t w o u ld g i v e t h e e x e c u t i v e s u f f i ­ c i e n t tim e i n o f f i c e t o s e c u r e t h e r e s u l t s

fr o m h i s p o l i c y

and h i s a d m i n i s t r a t i o n . As t h e s e v e n - y e a r t e r m , a s w e l l a s a l l te r m s s u g ­ g e s t e d , was c l o s e l y a l l i e d had a v a r i e d c a r e e r .

to s e v e r a l o th er q u e s tio n s ,

it

I t was a c c e p t e d by t h e m a j o r i t y o f t h e

C o n v e n t io n o n June 1 , r e j e c t e d t h r e e d i f f e r e n t t i m e s i n J u l y , b u t was r e a d o p t e d on J u l y 2 6 .

T hus, i t

a p p e a r e d among t h e

r e s o l u t i o n s o f t h e C om m ittee o f D e t a i l o n A u g u s t 6 .

T h is

d e c i s i o n , h o w e v e r , was a g a i n r e v e r s e d on S e p te m b e r 4 , and tw o d a y s l a t e r , met i t s

fin a l d efea t.

8.

The c h i e f e x e c u t i v e t o b e i n e l i g i b l e

9.

The P r e s i d e n t t o b e i n e l i g i b l e t o o f f i c e s ix years

f o r a s e c o n d te r m f o r more t h a n

in any t w e lv e y e a rs

One o f t h e q u e s t i o n s w i t h w h ic h t h e l e n g t h o f t e r m o f t h e P r e s i d e n t was t i e d up was h i s e l i g i b i l i t y

to r e - e l e c t i o n .

A l o n g t e r m w i t h n o r e - e l e c t i o n s was f a v o r e d by so m e , w h i l e

27 s h o r t e r te r m s w i t h a p o s s i b l e r e - e l e c t i o n w e r e a d v o c a t e d by o th ers.

Prom t h e t i m e t h a t R a n d o lp h 's r e s o l u t i o n t h a t t h e

" e x e c u t i v e b e i n e l i g i b l e a s e c o n d t i m e ” a p p e a r e d on May 2 9 u n t i l t h e C om m ittee o f S t y l e on S e p t e m b e r 12 t o o k t h e l i b e r t y o f d ro p p in g i t

f r o m t h e f i n a l r e p o r t , t h e c l a u s e was v o t e d

upon r e p e a t e d l y w i t h v a r y i n g r e s u l t s .

W henever p r o v i t i o n s

a g a i n s t h i s r e - e l e c t i o n w ere d e f e a t e d , G erry , M a rtin , B u t l e r , and o t h e r s , who f e a r e d t h a t t h e e x e c u t i v e m ig h t e v e n t u a l l y become a d i c t a t o r , a t t e m p t e d t o h a v e i t and E l l s w o r t h , among o t h e r s , th ey f e l t

r e in sta te d .

opposed t h e s e e f f o r t s

M o r r is sin c e

t h a t t h e r e w a r d o f a p o s s i b l e r e - a p p o i n t m e n t w o u ld

i n c i t e an e x e c u t iv e to m er it p u b lic e s te e m . As a means o f c i r c u m v e n t i n g t h e d i f f i c u l t i e s a v o id in g th e a b s o lu te

in e lig ib ility

and o f

o f t h e e x e c u t i v e , C h a r le s

P in c k n e y b r o u g h t f o r w a r d t h e p r o p o s a l t h a t n o p e r s o n b e e lig ib le

to th e e x e c u tiv e o f f ic e

any t w e lv e .

f o r more t h a n s i x y e a r s

As p a s t e x p e r i e n c e u n d e r t h e C o n f e d e r a t i o n had

proved t h a t a sy stem o f r o t a t io n a v o i d e d i n t h e new g o v e r n m e n t , The p r o b le m was f i n a l l y te r m was r e d u c e d fr o m s e v e n t o

in

o ffic e

was a n e v i l t o be

t h i s m o t io n was d e f e a t e d . s o l v e d when t h e P r e s i d e n t ' s fo u r y e a r s .

I t was t h e c o n ­

s e n s u s o f o p i n i o n , h o w e v e r , t h a t t h e l a t t e r t e r m was t o o b r i e f a p e r io d .t o a llo w th e P r e s id e n t 's p o l i c i e s , to bear fr u it.

in

28 Today many p e o p l e f e e l t h a t t h e m ak ers o f t h e C o n s t i t u ­ t i o n w e r e i n s e r i o u s e r r o r when t h e y d e f e a t e d t h e p r o p o s i t i o n s t h a t t h e P r e s i d e n t s e r v e s e v e n y e a r s and t h a t h e b e i n e l i g i b l e to r e - e l e c t i o n . e ffo rts

I t has been p o in te d out t h a t th e P r e s i d e n t ' s

t o g a i n a r e - e l e c t i o n t a k e b o t h t i m e and e n e r g y - w h i c h

he s h o u l d d e v o t e t o t h e d u t i e s o f h i s o f f i c e , e le c tio n s are c o s t ly ,

th a t th e e x tr a

th a t th e y in te r r u p t th e r e g u la r in d u s­

t r y o f t h e c o u n t r y , a n d . t h a t t h e y c r e a t e u n e a s i n e s s and d i s s e n s i o n s among t h e p e o p l e .

Some h a v e g o n e s o f a r a s t o

a d v o c a t e a c o n s t i t u t i o n a l amendment a s a means o f r e c t i f y i n g th is

erro r in th e

judgm ent o f t h e f o u n d e r s .

1 0 . The p r e s i d e n t t o b e c h o s e n b y C o n g r e ss 1 1 . M o d if ic a t io n o f c h o ic e by C ongress The p r o b le m o f t h e m ethod o f c h o o s i n g t h e e x e c u t i v e was c o m p l i c a t e d t o s o g r e a t an e x t e n t by s u c h q u e s t i o n s a s h is e l i g i b i l i t y th e d e t a ils

t o r e - e l e c t i o n and h i s l e n g t h o f t e r m t h a t

o f t h e c o n t r o v e r s y w o u ld b e d i f f i c u l t

to fo llo w .

As s o o n a s R a n d o lp h * s r e s o l u t i o n p r o p o s i n g t h e a p p o in t m e n t o f t h e P r e s i d e n t by t h e N a t i o n a l L e g i s l a t u r e was b r o u g h t up f o r d i s c u s s i o n on June 1 , a w id e d i v e r g e n c e o f o p i n i o n among t h e d e le g a te s

i n t h e C o n v e n t io n l e d t o num erous p r o p o s a l s w h ic h

g r e a t l y d e la y e d th e f i n a l d e c i s i o n .

T h o se s t r o n g l y o p p o s e d

t o m a k in g t h e e x e c u t i v e d e p e n d e n t upon t h e L e g i s l a t u r e f o r h i s o f f i c e , made nu m erous u n s u c c e s s f u l e f f o r t s

t o have t h i s

c l a u s e s t r i c k e n fro m t h e r e c o r d s .

I t was r e t a i n e d , w i t h t h e

e x c e p t i o n o f o n e w e e k i n J u l y , u n t i l S e p te m b e r 4 , when a s p e c i a l c o m m it t e e o f f e r e d a s y s t e m s i m i l a r t o o u r p r e s e n t one.

T h is m eth od was a c c e p t e d , n o t b e c a u s e t h e m ethod was

s a t i s f a c t o r y t o t h e m a j o r i t y , b u t b e c a u s e o t h e r m eth o d s p r o ­ p o s e d w e r e f a r m ore o b j e c t i o n a b l e .

By J u l y 2 6 , a c c o r d i n g t o

M ason, t h e C o n v e n t i o n had r e c e i v e d p r o p o s a l s t h a t t h e e l e c ­ t i o n o f t h e P r e s i d e n t be made by t h e p e o p l e a t l a r g e , by t h e in d iv id u a l le g i s l a t u r e s o f th e s t a t e s ,

o f th e s t a t e s , by th e c h i e f - e x e c u t i v e s

by e l e c t o r s

c h o s e n by t h e p e o p l e f o r t h a t p u r ­

p o s e , by r e q u i r i n g e a c h f r e e h o l d e r t o v o t e f o r s e v e r a l c a n ­ d i d a t e s , b y d i r e c t e l e c t i o n by t h e p e o p l e , and b y a l o t t e r y system .

E ach o f t h e s e had met w i t h i n s u p e r a b l e o b j e c t i o n s . M ad ison f e l t

t h a t n o n e o f t h e s e modes w o u ld w e a k e n t h e

new g o v e r n m e n t more t h a n t h e o r i g i n a l o n e .

He a s s e r t e d t h a t

t h e e l e c t i o n . o f t h e p r e s i d e n t by t h e N a t i o n a l L e g i s l a t u r e w o u ld n o t o n l y d e f e a t t h e p u r p o s e f o r w h ic h t h e s e p a r a t e and in d e p e n d e n t d e p a r t m e n t s o f g o v e r n m e n t had b e e n e s t a b l i s h e d , b u t t h a t t h e m eth od w o u ld a g i t a t e and d i v i d e t h e L e g i s l a t u r e , t h a t t h e c a n d i d a t e w o u ld i n t r i g u e w i t h t h e L e g i s l a t u r e and w o u ld d e r i v e h i s a p p o i n t m e n t fr o m t h e p r e d o m in a n t f a c t i o n ; i t w o u ld b e a p t t o r e n d e r h i s a d m i n i s t r a t i o n s u b s e r v i e n t t o t h e v i e w s o f t h e L e g i s l a t u r e and i t w o u ld g i v e t h e m i n i s t e r s o f f o r e i g n p o w e r s t h e o p p o r t u n i t y t o m ix t h e i r in f lu e n c e w ith th e e le c t io n ."

i n t r i g u e s and

30 N e v e r t h e l e s s t h i s mode o f a p p o i n t m e n t o f t h e P r e s i d e n t by t h e N a t i o n a l L e g i s l a t u r e ,

s t r i c k e n o u t f o r o n l y o n e w eek

i n J u l y , r e m a in e d on r e c o r d u n t i l S e p te m b e r 4 w h i l e o t h e r m eth o d s o r m o d i f i c a t i o n s o f t h e s e w ere b e i n g d i s c u s s e d . As e f f o r t s

t o s e c u r e more g e n e r a l a p p r o v a l o f some

mode o f P r e s i d e n t i a l e l e c t i o n , , o r o f t h e o r i g i n a l p r o p o s i t i o n in a m o d ifie d form , c o n t in u e d ,

i t was e v i d e n t t h a t t h e a p ­

p o i n t m e n t o f t h e P r e s i d e n t b y t h e L e g i s l a t u r e was i n g e n e r a l more f a v o r e d t h a n o t h e r s . o b je c tio n s to

it,

In o r d e r to overcom e t h e e x i s t i n g

s i x d i f f e r e n t m o d i f i c a t i o n s w ere p r o p o s e d .

E l l s w o r t h moved t h a t t h i s mode b e u s e d e x c e p t when t h e m a g i s ­ t r a t e c o n tin u e s

i n o f f i c e t h e w h o le te r m f o r w h ic h h e was

c h o s e n and b e r e - e l i g i b l e

t o a s e c o n d t e r m ; i n w h ic h c a s e ,

t h e c h o i c e s h a l l b e by e l e c t o r s a p p o i n t e d by t h e l e g i s l a t u r e s o f th e s t a t e s

fo r th a t p u rp ose.

T h is was d e f e a t e d , a s was

t h e C h a r l e s Pinckney^- p l a n f o r r o t a t i o n i n o f f i c e , a l r e a d y 2 r e f e r r e d t o in s e c t i o n 9 o f t h is ch a p ter. On A u g u s t 2 4 a m o t io n t o c h a n g e r e s o l u t i o n 7 o f t h e V i r g i n i a R e s o l u t i o n s b y i n s e r t i n g t h e w ord s

1 There w ere and C h a r l e s C. . A l l " P in c k n e y 11 r e f e r t o referred t o , h is f u 2

"by j o i n t b a l l o t 1*

tw o P i n c k n e y s i n t h e C o n v e n t i o n , C h a r l e s th e r e fe r e n c e s in t h is stu d y to th e form er. I f C h a r le s C. P i n c k n e y i s l l name w i l l be g i v e n .

p. 27.

31 a f t e r t h e w ord s

"the N a t i o n a l L e g i s l a t u r e " c a r r i e d , b u t t h e

m o t i o n s t o g i v e e a c h member o f b o t h h o u s e s o n e v o t e ,

or to

a l l o w t h e m a j o r i t y o f t h e v o t e s o f o n l y members p r e s e n t t o co u n t, or to g iv e th e p r e sid e n t o f th e S en a te th e d e c id in g v o te in case o f a t i e ,

w ere a l l r e j e c t e d .

The w e a r y d e l e g a t e s , u n a b l e t o r e a c h a f i n a l d e c i s i o n , f i n a l l y h an d ed t h e t r o u b l e s o m e p r o b le m t o a s p e c i a l c o m m i t t e e , w h ic h s o o n t h e r e a f t e r p r e s e n t e d t o t h e c o n v e n t i o n a s y s t e m f o r t h e e l e c t i o n o f t h e e x e c u t i v e by a n e l e c t o r a l c o l l e g e . T h i s , w i t h few c h a n g e s , we u s e a t t h e p r e s e n t . 1 2 . To b e c h o s e n b y t h e s t a t e

le g isla tu r e s

in a c e r ta in p ro­

p o r tio n 1 3 . To b e c h o s e n b y s t a t e e x e c u t i v e s Two o f t h e m ost u n p o p u la r modes o f e l e c t i o n , w h ic h w e r e p r o p o s e d and r e j e c t e d , p l a c e d t h e e l e c t i o n o f t h e p r e s i ­ d en t under th e a u t h o r it y o f th e s t a t e s .

One o f t h e s e , a n

e l a b o r a t e sch em e t o t u r n t h e e l e c t i o n o f t h e n a t i o n a l e x e c u ­ t i v e o v e r t o t h e s t a t e l e g i s l a t u r e s , w h o se v o t e was t o b e i n t h e same p r o p o r t i o n a s i t had b e e n p r o p o s e d t h a t t h e y c h o o s e e l e c t o r s , n e v e r r e c e iv e d a form al v o t e . th a t th e le g is la t u r e s

P r o p o s a ls , how ever,

e l e c t th e P r e sid e n t r e c e iv e d a m a jo rity

v o te b e fo r e b e in g d e f e a t e d .

R a n d o lp h and M a d iso n e x p r e s s e d

t h e i r d i s a p p r o v a l o f t h e s e o r a n y o t h e r m eth od s t h a t m ig h t make t h e e x e c u t i v e s o d e p e n d e n t up on t h e s t a t e

le g isla tu r e s

32 t h a t he c o u ld n o t d e fe n d w it h fir m n e ss th e n a t i o n a l r i g h t s a g a i n s t en croach m en ts o f th e s t a t e . A n o t h e r p r o p o s a l was d e s i g n e d t o p l a c e t h e p r e s i d e n t i a l e le c tio n

i n t h e h a n d s o f t h e s t a t e e x e c u t i v e s , w h o se p r o p o r ­

t i o n o f v o t e s was t o b e t h e same a s t h a t a l l o w e d b y t h e s t a t e s in th e e l e c t i o n o f th e S e n a te .

The v o t e a g a i n s t t h i s was

a lm o st u n a n im o u s. 1 4 . To

b e e l e c t e d by t h e p e o p l e d i r e c t l y S t i l l a n o t h e r m eth od p r o p o s e d f o r t h e a p p o i n t m e n t o f

t h e P r e s i d e n t was t h a t o f p o p u l a r e l e c t i o n .

Many members o f

t h e C o n v e n t io n o p p o s e d t h e s e l e c t i o n o f o f f i c e r s branch o f th e governm ent by th e c i t i z e n s ,

o f any

on t h e g r o u n d s t h a t

t h e p e o p l e w o u ld b e l e d by a fe w a c t i v e and d e s i g n i n g men, t h a t t h e m o st p o p u l o u s s t a t e s w o u ld c a r r y t h e i r p o i n t s , a n d , a l s o , t h a t t h e e x t e n t o f t h e c o u n t r y w o u ld r e n d e r i t s i b l e fo r th e p e o p le t o

im p o s­

jud ge t h e t r u t h o f t h e r e s p e c t i v e

p r e te n sio n s o f th e c a n d id a te s.

It is not stra n g e, th e r e fo r e ,

t h a t two p r o p o s a l s p r o v i d i n g f o r t h e d i r e c t p a r t i c i p a t i o n o f th e p e o p le in th e e l e c t i o n o f th e P r e s id e n t , w ere

d efea ted .

The e l e c t o r a l s y s t e m f i n a l l y w ork ed o u t i n

a sp e c ia l

c o m m it t e e p r o v e d t o be a n a c c e p t a b l e c o m p r o m is e .

33 1 5 - To b e c h o s e n b y e l e c t o r s

c h o s e n by t h e s t a t e

le g isla tu r e s

1 6 . To b e c h o s e n b y e l e c t o r s

t o be c h o s e n by t h e p e o p l e

a . E le c to r s

to

m eet a t th e n a t i o n a l c a p i t a l

b. E le c to r s

to

be p a id ou t o f th e N a tio n a l T rea su ry

c . The number o f e l e c t o r s a l l o t t e d se t a r b itr a r ily ,

to each s t a t e

(l)

be

(2 ) be a p p o r t i o n e d among t h e s t a t e s ,

etc • 1 7 . To b e c h o s e n b y e l e c t o r s

c h o s e n by l o t

W h ile p r o p o s a l s f o r a d i r e c t p o p u l a r e l e c t i o n o f t h e e x e c u t i v e w ere n e v e r s u p p o r t e d b y more t h a n o n e o r tw o v o t e s , th e id ea o f i n s t i t u t i n g a sy stem o f in te r m e d ia te e l e c t o r s . g a in e d fa v o r a s

soon a s

D u r in g t h e d e b a t e s

i t was f i r s t

s u g g e s t e d o n June 2 .

o f J u l y and A u g u s t , t h i s

i n d i r e c t m eth od

o f e l e c t i o n was p r o m o ted b y s u c h i n f l u e n t i a l d e l e g a t e s a s G e r r y , L u t h e r M a r t i n , E l l s w o r t h , W i l l i a m s o n , and W i l s o n . B e f o r e h i t t i n g up on t h e e l e c t o r a l p l a n w h ic h was l a t e r a d o p t e d , t h r e e d i f f e r e n t m eth o d s o f c h o o s i n g t h e e l e c t o r s w ere p r o p o s e d .

The f i r s t

o n e , w h ic h a c h i e v e d t h e g r e a t e s t

s u c c e s s , t e m p o r a r i l y , was t h a t t h e a p p o in t m e n t o f t h e e x e c u ­ t i v e b e made b y e l e c t o r s M o tio n s t o t h i s

c h o s e n by t h e s t a t e

le g isla tu r e s.

e f f e c t p a s s e d s e v e r a l tim e s but w ere a lw a y s

o p p o s e d by a d e t e r m i n e d m i n o r i t y , who c o n s t a n t l y r e n e w e d th e ir e ffo r ts

to d e fe a t

it .

34

B e f o r e i t met w i t h f i n a l d e f e a t , W i ls o n moved t h a t t h e e l e c t o r s be c h o se n by l o t

fro m t h e N a t i o n a l L e g i s l a t u r e .

As

t h i s game o f c h a n c e d i d n o t a p p e a l t o t h e d e l e g a t e s a s b e i n g le ss

o b j e c t i o n a b l e t h a n t h e o r i g i n a l p l a n , h i s m o t i o n was

p o s t p o n e d and was n e v e r r e c o n s i d e r e d . A t h ir d v a r ia t i o n o f th e p la n o f in d ir e c t e l e c t i o n o f t h e e x e c u t i v e was p r o p o s e d o n A u g u s t 2 4 , when M o r r is and C a r r o l l moved t h a t t h e e l e c t o r s be c h o s e n by t h e p e o p l e o f t h e several sta tes .

T h is p r o p o s a l met d e f e a t by o n l y a s l i g h t

m a rg in . Many d e c i s i o n s c o n c e r n i n g t h e a p p o i n t m e n t o f t h e e x e c u ­ t i v e w ere in f lu e n c e d by o th e r d is t u r b in g q u e s t i o n s . in s ta n c e , th e q u e stio n o f r a t io o f e le c t o r s e a c h s t a t e was d i f f i c u l t

F or

to be a l l o t t e d

to

t o s e t t l e , and many s u g g e s t i o n s f a i l e d

t o w in a p p r o v a l b e c a u s e t h e r i v a l r y b e t w e e n t h e l a r g e and t h e s m a l l s t a t e s was k e e n . (l)

T h is l e d t o t h e d e f e a t o f m o t i o n s

th a t e a ch s t a t e n o t e x c e e d in g tw en ty th ou san d in h a b it a n t s

be a l l o w e d o n e ,

ea ch s t a t e n o t e x c e e d in g t h i r t y th ou san d be

a l l o w e d t w o , and t h a t s t a t e s a llo w e d th r e e ea ch ;

e x c e e d in g t h i r t y thou san d be

( 2 ) t h a t t h e number o f t h e e l e c t o r s be s e t

a r b i t r a r i l y a t t w e n t y - f i v e , and t h a t t h e s e b e d i v i d e d among th e s t a t e s a c c o r d in g t o c e r t a in s p e c i f i c a t i o n s th e C o n v e n tio n ;

(3 ) t h a t t h e number o f e l e c t o r s

l a i d down b y f o r each

s t a t e be r e g u l a t e d b y t h e number o f t h e i r r e p r e s e n t a t i v e s th e

uF i r s t B r a n c h 11 o f t h e L e g i s l a t u r e ;

in

( 4 ) t h a t one e l e c t o r

35 be a l l o w e d t o t h e s m a l l e r s t a t e s and t h r e e t o t h e l a r g e r o n e s . When a l l o f t h e s e f a i l e d t o g a i n a p p r o v a l , t h e r a t i o w o r k e d o u t by a s p e c i a l c o m m i t t e e g i v i n g e a c h s t a t e -a number o f e le c to r s

e q u a l t o t h e w h o le number o f S e n a t o r s and R e p r e s e n t ­

a t i v e s t o w h ic h t h e s t a t e was e n t i t l e d

i n C ongress has p roved

sa tisfa c to r y . Among t h e d e f e a t e d p r o p o s a l s o f m in o r i m p o r t a n c e w e r e tw o w h ic h c o n c e r n e d t h e m e e t i n g p l a c e o f t h e e l e c t o r s and t h e so u rc e o f t h e i r r em u n er a tio n . On J u l y 2 1 , W i l l i a m s o n p r o p o s e d t h a t t h e e l e c t o r s t h e e x e c u t i v e be p a i d o u t o f t h e N a t i o n a l T r e a s u r y .

of

As t h e y

w e r e p e r f o r m i n g a n a t i o n a l s e r v i c e , , t h i s se e m e d f a i r , and t h e m o t i o n was g i v e n u n a n im o u s a p p r o v a l .

T h is,' h o w e v e r , was

d r o p p e d by t h e s p e c i a l c o m m it t e e w h ic h p r o p o s e d t h e e l e c t o r a l p la n .

As a r e s u l t n o m e n t i o n o f t h e i r r e m u n e r a t i o n i s m en­

tio n e d

in th e C o n s titu tio n , but th e s t a t e s have tak en t h is

fin a n c ia l r e s p o n s ib ility .

T h is h a s w orked o u t s a t i s f a c t o r i l y

f o r , a f t e r t h e d e f e a t o f a m o t i o n t h a t t h e e l e c t o r s m eet a t th e n a tio n a l c a p ita l fo r th e e le c t io n ,

t h e C o n v e n t io n a c c e p t e d

t h e e l e c t o r a l p l a n w h ic h i n c l u d e d d i r e c t i o n s t h a t e l e c t o r s m eet i n t h e i r r e s p e c t i v e s t a t e s .

36 18.

In

c a s e o f n o c h o i c e by t h e

e le c t o r a l c o ll e g e ,th eP r e sid e n t

i s t o be c h o s e n by C o n g r e s s 19-

To

be chosen by th e S en a te:

a . The S e n a t e t o b e l i m i t e d

to

th eth r e e h ig h e s t;

to

th e

th ir te e n h ig h e st 20.

To b e c h o s e n b y t h e H ouse o f R e p r e s e n t a t i v e s The l o n g - d r a w n - o u t c o n t e s t o v e r t h e m ethod o f c h o o s i n g

t h e e x e c u t i v e was f i n a l l y s e t t l e d t o r a l C o lle g e p la n .

by t h e a d o p t i o n o f t h e E l e c ­

B efo re th e a ccep ta n ce o f t h is g e n e r a l

m ethod many p e r p l e x i n g q u e s t i o n s w e r e r a i s e d .

One o f t h e s e

was t h e q u e s t i o n o f how t o p r o c e e d t o an e v e n t u a l e l e c t i o n o f . t h e P r e s i d e n t i n c a s e no c h o i c e was made by t h e E l e c t o r a l C o lle g e . I t was e v i d e n t by t h e s e r i o u s t o n e o f t h e d e b a t e s on t h e s u b j e c t t h a t t h e C o n v e n t io n b e l i e v e d t h a t t h e e l e c t o r s w o u ld o f t e n f a i l t o c a s t t h e r e q u i r e d m a j o r i t y v o t e f o r a n y one p e r s o n , and, t h e r e f o r e , a f in a l d e c is io n

t h a t a p r o p e r p r o v i s i o n f o r m aking

i n a p r e s i d e n t i a l - e l e c t i o n was o f t h e u t m o s t

im p o r ta n c e . Two s e p a r a t e p r o p o s a l s t o i n s u r e t h e e v e n t u a l e l e c t i o n o f t h e e x e c u t i v e w e r e n^ide and d e f e a t e d .

One o f t h e s e l e f t

th e f i n a l c h o ic e to C on gress; th e o th e r , to

th e S e n a te .

In

e ith e r c a se ,

i f no p e r s o n r e c e i v e d t h e m a j o r i t y o f t h e e l e c ­

to ra l v o tes,

t h e y w e r e t o v o t e f o r o n e fr o m t h e

f,f i v e M h i g h e s t

37 on t h e l i s t . to

Two a t t e m p t s t o c h a n g e t h e

" fiv e " to

" th ree" or

" t h i r t e e n , " r e s p e c t i v e l y , w e r e r e j e c t e d o n S e p te m b e r 5 ,

and t h e w ords A r tic le

II,

" f i v e h i g h e s t on t h e l i s t "

becam e p a r t o f

S e c tio n I o f th e C o n stitu tio n .

The f a i l u r e t o

s u b s t i t u t e t h e number " t h r e e " was p e r h a p s a s l i g h t e r r o r i n c h o ic e ,

fo r, a fte r

le ss

th an tw e n ty y e a r s o f e x p e r ie n c e ,

" t h r e e " was s e l e c t e d b y t h o s e who d r a f t e d t h e t w e l f t h am end­ ment w h ic h a l t e r e d t h e e l e c t o r a l s y s t e m . The s m a l l e r s t a t e s , h a v i n g t h e a d v a n t a g e o f e q u a l r e p r e se n ta tio n

in th e S e n a te , h e a r t i l y approved o f p la c in g th e

e v e n t u a l p o w er o f e l e c t i o n

i n t h e S e n a t e , b u t many d e l e g a t e s ,

among whom w e r e R a n d o lp h , W i l s o n , P i n c k n e y , and W i l l i a m s o n , fe lt ia l

s u r e t h a t t h i s p l a n i n o p e r a t i o n w o u ld i n c r e a s e s e n a t o r ­ in flu e n c e to a dangerous e x te n t ,

S e n a t e was t o t r y

e s p e c i a l ly s in c e th e

im p ea ch m en ts and t o c o n f i r m a p p o i n t m e n t s .

The p r o p o s a l , h o w e v e r , t o s t r i k e o u t t h e word " S e n a te " and in se r t

" N a t i o n a l L e g i s l a t u r e " met w i t h a prom pt d e f e a t on

S e p te m b e r 5 , a s t h e C o n v e n t io n i n g e n e r a l f e a r e d t h a t c o n c e n - . t r a t i o n o f p ow er i n t h e h a n d s o f t h e l a r g e s t a t e s w h ic h w o u ld p r e d o m i n a t e i n c a s e t h e H ouse and S e n a t e s h o u l d be u n i t e d f o r th is p u rp ose. The S e n a t e f i n a l l y l o s t t h e p r i v i l e g e o f m aking t h e f i n a l a p p o i n t m e n t o f t h e P r e s i d e n t on S e p te m b e r 6 , when Sherm an p r o p o s e d a n a c c e p t a b l e c o m p r o m ise i n w h ic h t h e H ouse o f R e p r e ­ s e n t a t i v e s , v o t i n g b y s t a t e s , was t o h a v e t h e p ow er t o e l e c t

t h e P r e s i d e n t In c a s e o f a t i e - v o t e . The C o n v e n t io n d i d w e l l t o d e f e a t t h e s e p r o p o s i t i o n s s i n c e t h e e l e c t o r a l p ow er l o d g e d i n e i t h e r C o n g r e s s o r t h e S e n a t e a s p l a n n e d m ig h t h a v e g i v e n th em u n du e i n f l u e n c e o v e r t h e P r e s i d e n t and h i s d e p a r t m e n t . 21.

In c a s e o f a v a c a n c y t h e o f f i c e o f P r e s i d e n t t o be f i l l e d by ( l )

th e P r e sid e n t o f th e S e n a te ,

(2 ) th e C h ie f J u s t i c e ,

( 5 ) t h e P r e s i d e n t s A d v is o r y C o u n c il In o rd er to p r o v id e f o r a s u c c e s s o r t o th e p r e s id e n t in c a se o f a vacancy in h is o f f i c e ,

H a m ilt o n i n h i s p l a n o f

g o v e r n m e n t a n d , a l s o , t h e C om m ittee o f D e t a i l ,

r e p o r t i n g on

A ugust 6 , p ro p o sed t h a t th e P r e s id e n t o f t h e S e n a te d is c h a r g e t h e p o w ers and d u t i e s o f t h e o f f i c e

l e f t vacant u n t il a su c­

c e s s o r t o t h e P r e s i d e n t be a p p o i n t e d . When t h e C o n v e n t io n c o n s i d e r e d t h i s p l a n on A u g u s t 2 7 > M o r r is s t a t e d h i s p r e f e r e n c e f o r t h e d e s i g n a t i o n o f t h e C h i e f J u stic e

in s te a d o f th e P r e sid e n t o f th e S e n a te .

M a d is o n , f e a r ­

i n g t h a t t h e S e n a t e w o u ld r e t a r d t h e a p p o i n t m e n t o f a n o t h e r P r e s id e n t w h ile one o f i t s

own members s e r v e d i n t h e c a p a c i t y

o f c h i e f e x e c u t i v e , s u g g e s t e d t h a t t h e e x e c u t i v e pow ers d u r in g a v a c a n c y s h o u l d b e a d m i n i s t e r e d b y members o f t h e P r e s i d e n t fs A d v iso r y C o u n c il.

T h is C o u n c i l , w h ic h f i n a l l y

fa ile d

to

m a t e r i a l i z e , was s u p p o s e d t o c o n s i s t o f t h e c h i e f o f f i c e r s t h e im p o rta n t d e p a r tm en ts o f th e g o v ern m en t.

of

W i l l i a m s o n a d d ed

59 th e s u g g e s t io n t h a t th e L e g is la t u r e ought to be a llo w e d th e p ow er t o p r o v i d e f o r s u c h a v a c a n c y .

T hese t h r e e s u g g e s t i o n s

w e r e n e v e r p u t t o v o t e , b e c a u s e a m o t io n t o p o s t p o n e t h e w h o le su b je c t r e la t in g to a p r o v is io n a l su c c e sso r to th e P r e sid e n t was p a s s e d i n t h e a f f i r m a t i v e . The o r i g i n a l p r o p o s i t i o n , S en ate f i l l

th a t th e P r e sid e n t o f th e

t h e v a c a n c y , was d e f e a t e d

i n a s p e c i a l c o m m it t e e

w h o se r e p o r t o f S e p t e m b e r 4 c o n t a i n e d a p r o v i s i o n f o r a new go v ern m en ta l o f f i c e r c a l l e d

th e V ic e P r e s i d e n t .

T h is o f f i c e r

was t o b e p l a c e d i n l i n e o f d i r e c t s u c c e s s i o n t o t h e P r e s i d e n t in c a se o f a vacancy in th e e x e c u tiv e o f f i c e .

A lth o u g h th e

C o n v e n t io n was f a r fr o m e n t h u s i a s t i c o v e r t h e n e w l y - c r e a t e d o ffic e ,

t h e y a d o p t e d t h e C o m m i t t e e fs p r o p o s a l w h ic h was l a t e r

p la c e d in th e C o n s t it u t io n . The C o n v e n t io n sh ow ed g o o d judgm ent w hen i t d e f e a t e d t h e p r o p o s i t i o n t o o p e n t h e e x e c u t i v e o f f i c e t o a member o f t h e S e n a t e , a s h e w o u ld n a t u r a l l y f i n d

it

d iffic u lt,

o r even

i m p o s s i b l e , t o r e g a r d i m p a r t i a l l y q u e s t i o n s w h ic h i n v o l v e d th e in te r e s ts

o f t h e S e n a t e o r o f t h e s t a t e w h ic h had e l e c t e d

h im t o t h e S e n a t e . 2 2 . The P r e s i d e n t t o b e r e m o v a b le by C o n g r e s s on t h e a p p l i c a ­ t io n o f a m a jo r ity o f th e s t a t e e x e c u tiv e s 25* The P r e s i d e n t o u g h t t o b e r e m o v a b le by C o n g r e s s a t t h e

40 request o f s ta te le g is la tu r e s 2 4 . The P r e s i d e n t o u g h t n o t t o b e im p e a c h e d w h i l e i n o f f i c e I t was a g r e e d e a r l y i n t h e C o n v e n t io n t h a t some mode o f d i s p l a c i n g a n u n f i t m a g i s t r a t e was i n d i s p e n s i b l e . was d i f f i c u l t

S u c h a mode

t o f i n d s i n c e i t was a s e s s e n t i a l t o . g o o d g o v ­

ern m en t t h a t a

good p r e s i d e n t be g i v e n

a u t h o r i t y a s i t was

p r o p e r f r e e d o m and

th a t an i n e f f i c i e n t or co rru p t one be

c u r b e d .♦ A f a i r and e f f e c t i v e s o l u t i o n o f t h e p r o b le m was d i f f i ­ c u lt to reach .

The C o n v e n t io n d i d n o t

fa v o r th e p r o p o s a lin

t h e New J e r s e y

P la n t h a t th e e x e c u t iv e

b e r e m o v a b le by Con­

g r e s s on t h e a p p l i c a t i o n o f a m a j o r i t y o f s t a t e e x e c u t i v e s , n o r t o D i c k i n s o n !s p r o p o s a l on J u n e 2 t h a t t h e e x e c u t i v e b e r e m o v a b le by C o n g r e s s on t h e r e q u e s t o f a m a j o r i t y o f t h e le g isla tu r e s

o f th e in d iv id u a l s t a t e s .

The l a t t e r met w i t h

a l m o s t u n a n im o u s d e f e a t , w h i l e t h e f o r m e r was d i s c a r d e d a s w e r e a l l p r o v i s i o n s o f t h e New J e r s e y P l a n . The C o n v e n t io n w o u ld h a v e b e e n i n e r r o r had i t e ith e r o f th e se p r o v is io n s .

approved

In th e f i r s t p l a c e , t h e m ix tu r e

o f s t a t e and f e d e r a l a u t h o r i t y w o u ld h a v e b e e n a bad p o l i c y , b e c a u s e t h e p r im a r y p u r p o s e o f t h e new g o v e r n m e n t was t o f r e e n a tio n a l o f f ic e r s

from t h e i n f l u e n c e o f t h e s t a t e .

have g iv e n C ongress su ch pow er,

in t h i s

Then, to

i n s t a n c e , w o u ld h a v e

d e f e a t e d t h e fu n d a m en ta l p u rp o se b e h in d t h e e s t a b lis h m e n t o f

41 a s e p a r a t e and I n d e p e n d e n t e x e c u t i v e d e p a r t m e n t , a n d , f i n a l l y , s i n c e t h e p r o v i s i o n f o r t h e e l e c t i o n o f t h e P r e s i d e n t by t h e N a tio n a l L e g is la t u r e s t i l l p r e v a ile d ,

c o n g r e ssio n a l c o n tr o l

o f b o t h t h e e l e c t i o n o f t h e P r e s i d e n t and h i s r e m o v a l w o u ld h a v e c r e a t e d a m o st u n f a v o r a b l e s i t u a t i o n . B e f o r e im p each m en t o f t h e e x e c u t i v e was a d o p t e d a s a means o f s e c u r i n g t h e g o o d b e h a v i o r o f t h e e x e c u t i v e , P in c k n e y and M o r r is had p r o p o s e d t h a t t h e e x e c u t i v e s h o u l d n o t be im ­ peached w h ile in o f f i c e ,

b u t t h i s was i n d i r e c t l y d e f e a t e d when

t h e C o n v e n t io n v o t e d e i g h t t o t h r e e i n f a v o r o f im p e a c h m e n t. 2 5 . R em ovable by C o n g r e s s f o r m a l p r a c t i c e , n e g l e c t o f d u t y , and c o r r u p t i o n W h ile a t t e m p t s w e r e b e i n g made t o l o d g e t h e p o w er o f im peach m en t o f t h e P r e s i d e n t e f f e c t i v e l y ,

t h e C o n v e n t io n was

a l s o s t r i v i n g t o e n u m e r a te i m p e a c h a b le o f f e n s e s w h ic h c o u l d b r in g ab ou t h i s r em o v a l. w ere l i s t e d

V a r i o u s c a u s e s f o r s u c h p u n is h m e n t

from t i m e t o t i m e .

Among t h e s e ,

make t h e i r way i n t o t h e C o n s t i t u t i o n .

th r e e d id n o t

The f i r s t

tw o , m a lp ra c­

t i c e and n e g l e c t o f d u t y , w e r e a c c e p t e d on J u n e 2 b u t w e r e d r o p p e d by t h e C o m m ittee o f D e t a i l w h ic h e x t e n d e d t h e c a u s e f o r im peach m en t b y i n c l u d i n g i n i t s more g e n e r a l t e r m ,

r e p o r t on A ugust 6 t h e

" c o r r u p tio n . n . T h is ,

i n t u r n , was d e f e a t e d

by a s p e c i a l c o m m i t t e e r e p o r t i n g o n S e p te m b e r 4 . The r e f u s a l t o

i n c l u d e t h e s e t h r e e among t h e c a u s e s

42 f o r im peach m en t w h ic h w e r e l a t e r p l a c e d i n t h e C o n s t i t u t i o n , was s u r e l y n o t a m i s t a k e s i n c e t h e y w o u ld n o t h a v e i n c r e a s e d t h e number o f im p ea ch m en ts n o r h a v e s e r v e d a s a b a s i s

fo r th e

c o n v i c t i o n o f a n y P r e s i d e n t who h a s b e e n i m p e a c h e d . 26 . P r o p o s it io n to pay th e e x e c u t iv e no s a la r y \T h e p r o p o s itio n , c o n c e r n in g c o m p e n sa tio n .fo r th e n a t io n ­ a l e x e c u t iv e , as o u tlin e d

i n r e s o l u t i o n 6 ‘o f t h e V i r g i n i a P l a n ,

was p l a c e d i n t h e C o n s t i t u t i o n w i t h a l m o s t n o c h a n g e . th e e x e c u tiv e

is

In t h i s ,

to r e c e iv e p u n c tu a lly , a t s ta te d tim e s, a

fix e d sa la r y . One e f f o r t , h o w e v e r , was made t o a l t e r t h i s t o a g r e a t ex ten t.

F r a n k l i n , f e e l i n g t h a t a m b i t i o n and a v a r i c e p l a y an

im p o r t a n t p a r t i n t h e a f f a i r s

o f m en, moved t h a t t h e P r e s i ­

d en ts r e c e iv e a l l n e c e ssa r y exp en ses but

"no s a l a r y ,

stip e n d ,

f e e , o r rew a r d w h a t s o e v e r f o r t h e i r s e r v i c e s . ” M a d is o n , r e f e r r i n g t o t h i s m o t io n o n June 2 , s a y s t h a t i t was t r e a t e d w i t h g r e a t r e s p e c t , b u t r a t h e r f o r t h e a u t h o r , t h a n fr o m a n y a p p a r e n t c o n v i c t i o n o f i t s tic a b ility .

e x p e d ie n c y or p r a c ­

I t was s e c o n d e d b y H a m ilto n and t h e n p o s t p o n e d

w ith o u t d e b a te . F r a n k l i n ' s s u g g e s t i o n s o u n d s s t r a n g e t o d a y a s we j u d g e it

in th e l i g h t o f th e p a s t e x p e r ie n c e s o f s e v e r a l o f our

e a r l i e r P r e s i d e n t s , men o f w e a l t h , who fo u n d t h a t t h e f i n a n ­ c i a l dem ands o f t h e i r p o s i t i o n s o f a r e x c e e d e d t h e s a l a r y

43 t h a t t h e i r p e r s o n a l e s t a t e s w e re o v e r b u r d e n e d w i t h d e b t s by t h e t im e t h e p r e s i d e n t i a l te r m was f i n i s h e d . 2 7 - The P r e s i d e n t t o h a v e s e v e n d a y s i n w h ic h t o s i g n a b i l l A l t h o u g h t h e e x e c u t i v e and t h e l e g i s l a t i v e d e p a r t m e n t s a r e e s t a b l i s h e d a s tw o d i s t i n c t and i n d e p e n d e n t g o v e r n m e n t a l b o d ie s , th ey are n ot e n t i r e l y .d i s j o i n e d .

A c co r d in g to th e

C o n s t i t u t i o n , t h e P r e s i d e n t fs c h i e f d u ty i s

to ta k e care th a t

t h e la w s a r e f a i t h f u l l y

a ls o g iv e n th e

e x e c u t e d , but he i s

p r iv ile g e of p a r tic ip a tin g

in th e p a s s in g o f th o s e la w s.

In

t h e p r o c e s s o f l e g i s l a t i o n , no la w o r r e s o l u t i o n o f C o n g r e s s c a n be p a s s e d b e f o r e i t

has b een s e n t to th e P r e s id e n t f o r an

e x p r e s s i o n o f h i s a p p r o v a l o r d i s a p p r o v a l , a s t h e c a s e may b e . I f , how ever, he does n o t ta k e ad van tage o f t h i s

o p p o r tu n ity

t o s i g n and t o r e t u r n t h e b i l l t o C o n g r e s s w i t h i n t e n d a y s , i t a u t o m a t i c a l l y becom es a la w . A p r o p o s a l o f t h e C o m m ittee o f D e t a i l t o r e s t r i c t t h e P r e s i d e n t s d e l i b e r a t i o n on a n y o n e p i e c e o f l e g i s l a t i o n t o a s e v e n - d a y l i m i t was s t r i c k e n o u t on A u g u s t 1 5 S i n c e t h e demands u p o n t h e t i m e and e n e r g y o f t h e P r e s i d e n t h a v e b ecom e more and m ore num erous and p e r s i s t e n t , we r e a l i z e t h a t t h e d e f e a t o f t h e p r o p o s a l l i m i t i n g h i s

con­

s i d e r a t i o n o f a la w t o a s e v e n - d a y p e r i o d show ed t h e g o o d jud gm en t o f t h e d e l e g a t e s .

44 2 8 . P r e s i d e n t t o h a v e p o w er t o s u s p e n d a o t s o f C o n g r e s s 29* The P r e s i d e n t t o h a v e t h e a b s o l u t e v e t o 5 0 . The P r e s i d e n t ^

v e t o t o be o v e r - r i d d e n b y a t h r e e - f o u r t h s

v o t e o f C ongress D u r in g t h e C o n v e n t io n many d e l e g a t e s ,

fe a r in g th e

b r e a d t h o f a u t h o r i t y t h a t was b e i n g v e s t e d i n C o n g r e s s ,

sou ght

some means o f c u r b i n g f u t u r e l e g i s l a t u r e s w h ic h m ig h t a c t u n ­ w ise ly .

S e v e r a l s o l u t i o n s o f t h e p r o b le m w e r e p r o p o s e d . On June 4 ,

B u t l e r moved t h a t t h e n a t i o n a l e x e c u t i v e b e

g i v e n p o w er t o s u s p e n d a n y l e g i s l a t i v e a c t f o r a s p e c i f i e d tim e .

T h is was d e f e a t e d b y an o v e r w h e lm in g m a j o r i t y , a s w e r e

tw o s e p a r a t e p r o p o s a l s made on J u n e 4 and A u g u s t 7 > r e s p e c ­ tiv e ly ,

t h a t t h e P r e s i d e n t b e g i v e n t h e p o w er o f a n a b s o l u t e

v e t o on a l l l e g i s l a t i o n . H a m il t o n , d e s i r i n g n o t o n l y t o r e s t r a i n t h e pow er o f t h e L e g i s l a t u r e bu t t o i n c r e a s e t h a t o f t h e P r e s i d e n t , w ent so f a r a s t o p r o p o s e t h a t t h e p o w er t o n e g a t i v e a l l la w s a b o u t t o be p a s s e d , b e g i v e n t o t h e e x e c u t i v e d e p a r t m e n t .

T h i s , how­

e v e r , was i g n o r e d by t h e C o n v e n t i o n . It

is

f o r t u n a t e t h a t t h e s e m o tio n s w ere d e f e a t e d s i n c e

e i t h e r t h e pow er o f s u s p e n d e n c y o r t h e pow er o f t h e a b s o l u t e v e t o o f la w s l o d g e d i n t h e h a n d s o f o u r P r e s i d e n t s f o r t h e la st

c e n t u r y and a h a l f w o u ld h a v e b r o u g h t a b o u t a l a c k o f

sta b ility

in th e govern m en t,

i f not a d ic ta to r sh ip .

45 The C o n v e n t io n f i n a l l y g r a n te d , t o t h e e x e c u t i v e a v e t o p ow er w h ic h c o u l d be o v e r - r i d d e n by a t h r e e - f o u r t h s m a j o r i t y o f C on gress.

As s o l a r g e a p r o p o r t i o n m ig h t make i t p o s s i b l e

f o r S e n a t o r s , w h o se u s e o f p ow er was a l w a y s r e g a r d e d w i t h s u s ­ p i c i o n , t o c o m b in e a g a i n s t t h e P r e s i d e n t , and t o im p ed e t h e p a s s a g e o f p r o p e r l a w s , t h e t h r e e - f o u r t h s was s t r i c k e n o u t , and a m o t io n t h a t t h e v o t e o f t w o - t h i r d s o f C o n g r e s s b e s u f ­ f i c i e n t , was a c c e p t e d and l a t e r

in c o rp o ra te d in th e C o n s t it u ­

tio n . 3 1 . P r o p o s i t i o n t o d e n y t h e P r e s i d e n t pow er t o p a r d o n i n c a s e s o f trea so n The f i r s t a t t e m p t t o d e n y t h e P r e s i d e n t t h e p o w er t o pardon in c a s e s o f t r e a s o n , w ith o u t th e a p p ro b a tio n o f th e S e n a t e , was made b y H a m ilto n i n h i s P l a n o f G overnm ent p r e ­ s e n t e d o n June 2 4 . A l t h o u g h t h i s p r o p o s a l was i g n o r e d by t h e C o n v e n t i o n , it

a p p e a r e d a g a i n , a b o u t s e v e n w e ek s l a t e r ,

in th e r e p o r t o f

t h e C om m ittee o f D e t a i l . Not u n t i l S e p te m b e r 1 5 'was a v o i c e r a i s e d a g a i n s t t h i s e x c lu s iv e gran t o f pow er. moved t h a t

On t h a t d a y , R a n d o lp h and M a d iso n

in c a se s o f tr e a s o n ,

th e a p p ro b a tio n o f th e S e n a te

be r e q u i r e d , b u t a n e g a t i v e v o t e o n . t h i s ' l e f t ' t h e p o w er i n t h e hands o f t h e P r e s i d e n t , a l o n e , w here i t ma i n e d .

has s in c e r e -

46 To h a v e r e s t r a i n e d t h e p o w er o f t h e P r e s i d e n t t o p a r d o n i n c a s e s o f t r e a s o n w o u ld h a v e b e e n a g r e a t m i s t a k e . i f e v e r , has t h i s

t r u s t been b e tr a y e d .

In f a c t ,

S e ld o m ,

t h e p ow er i n

t h e h a n d s o f a h u m a n i t a r i a n P r e s i d e n t h a s p r o v e d t o be a great b le ssin g . th e l iv e s

D u r in g t h e C i v i l War, Abraham L i n c o l n s a v e d

o f many s o l d i e r s w h o se o n l y c r im e was t h e i r l o y a l t y

to th e la n d o f t h e i r b i r t h . 3 2 . The e x e c u t i v e t o h a v e p ow er t o c o r r e s p o n d w i t h s t a t e e x e c u tiv e s One o f t h e l e s s

im p o rta n t p r o v i s i o n s

in th e r e p o r t o f

t h e C o m m ittee o f D e t a i l g a v e t o t h e P r e s i d e n t t h e p r i v i l e g e o f c o r r e s p o n d i n g w i t h t h e su p rem e e x e c u t i v e s o f t h e s e v e r a l sta tes. it

T h is was s t r i c k e n o u t o n m o t io n o f M o r r i s , who s a i d

im p lie d t h a t th e P r e s id e n t co u ld n o t co rresp o n d w it h o t h e r s . T h is e f f o r t t o

in c lu d e in th e C o n s t it u t io n such an u n ­

n e c e s s a r y g r a n t o f p ow er i s

i n t e r e s t i n g b e c a u s e I t sh ow s a n

e a r n e s t d e s i r e t o c l e a r l y d e f i n e i n t h i s new d o c u m e n t o f g o v e r n m e n t t h e p o w e r s , r e s t r i c t i o n s , and p r i v i l e g e s g r a n t e d each d ep artm en t. 3 3 - F iv e e x e c u t i v e d ep artm en ts s u g g e s t e d . The i d e a o f a C o u n c i l o f S t a t e was i n h e r i t e d fro m c o l o n ­ i a l t i m e s when b o t h H ou ses had a c t e d a s a d v i s e r s t o t h e G overnor.

A t t h e p r e s e n t tim e t h e e x e c u t i v e has a C a b in e t,

b u t i t h a s no l e g a l e x i s t e n c e a s a b o d y b e c a u s e no d e p a r t m e n t s

^7 o f governm ent to a s s i s t tu tio n .

t h e P r e s i d e n t a r e named i n t h e C o n s t i ­

T h is was n o t an o v e r s i g h t , h o w e v e r . On A u g u s t 2 0 , M o r r is and P in c k n e y s u b m i t t e d t o t h e Con­

v e n t i o n an e l a b o r a t e p l a n d e s i g n e d t o p r o v i d e an A d v i s o r y C o u n c il to a s s i s t

th e P r e sid e n t

in c o n d u c tin g p u b lic a f f a i r s .

T h is C o u n c i l , w i t h t h e d u t i e s o f e a c h member c a r e f u l l y o u t ­ l i n e d , was t o c o n s i s t o f t h e C h i e f J u s t i c e o f t h e Supreme ‘ C o u r t , and t h e h e a d s o f t h e d e p a r t m e n t s o f D o m e s t i c a f f a i r s , Commerce and F i n a n c e , F o r e i g n a f f a i r s , War, and o f t h e M a r in e . The w h o le p r o v i s i o n f o r t h i s ,

so c a lle d ,

C o u n c il o f

S t a t e was w i s e l y d e f e a t e d by a s p e c i a l c o m m i t t e e ,

i n t o w h o se

c a re t h i s p la n f o r a d d in g a p i e c e o f u n n e c e ss a r y g o v ern m en ta l m a c h in e r y was e n t r u s t e d . ^ 4. P r o v is io n to p r o v id e fo r a S e c r e ta r y o f S t a t e Among t h e d e f e a t e d p r o p o s i t i o n s

in c o r p o r a te d in th e

M o r r i s - P i n c k n e y p r o p o s a l s o f A u g u s t 2 0 , was t h e p r o v i s i o n t h a t t h e P r e s i d e n t a p p o i n t a S e c r e t a r y o f S t a t e who s h o u l d s e r v e i n t h e c a p a c i t y o f a p u b l i c s e c r e t a r y t o b o t h t h e P r e s i d e n t and h i s A d v is o r y C o u n c il o f S t a t e

( t h e o r g a n i z a t i o n w h ic h t h e y had

ju st p rop osed ). The C om m ittee o f D e t a i l sh ow ed g o o d ju d gm en t when i t r e je c te d th e p r o v is io n to w h ic h h a s n e v e r b e e n f e l t .

c r e a t e t h i s new o f f i c e ,

th e need o f

T oday a p r i v a t e s e c r e t a r y p e r fo r m s

th e fu n c tio n su g g ested fo r th e S ecreta ry o f S ta te .

CHAPTER IV THE NATIONAL LEGISLATURE 1.

A ll l e g i s l a t i v e

pow er s h a l l h e v e s t e d i n C o n g r e s s

I n o r d e r t o p r e v e n t t h e N a t i o n a l L e g i s l a t u r e fro m e n ­ c r o a c h in g upon th e r i g h t s o f th e s t a t e s

or o th e r d ep artm en ts

o f g o v e r n m e n t , c e r t a i n p r o h i b i t i o n s a r e im p o s e d u p o n C o n g r e s s i n t h e b od y o f o u r C o n s t i t u t i o n . On A u g u s t 6 , h o w e v e r , a s p e c i a l c o m m i t t e e p r o p o s e d t h a t a ll le g isla tiv e C ongress.

p o w e r , w i t h o u t an y r e s e r v a t i o n s ,

be v e s t e d i n

A l t h o u g h t h i s was n o t c h a n g e d d i r e c t l y d u r i n g t h e

d a y s w h ic h f o l l o w e d ,

o th e r pow ers t o be e x e r c i s e d

by t h e

N a tio n a l L e g is la tu r e

w ere d e f in e d or en u m erated .

The Comm it­

t e e on S t y l e ,

th erefo re,

p l a e e d * a l i m i t u p on t h i s la w -m a k in g

pow er by i n c l u d i n g t h e c l a u s e ,

" A l l l e g i s l a t i v e pow er h e r e i n

g r a n te d s h a l l be v e s t e d in th e C on gress o f th e U n ite d S t a t e s . " One o f t h e p r i n c i p l e s u n d e r l y i n g ou r C o n s t i t u t i o n i s t h a t o f en u m erated p o w er s. been g ra n ted to C on gress, sary.

I f " a ll le g is la t iv e

power" h a d

e n u m e r a t i o n w o u ld h a v e b e e n u n n e c e s ­

The d e f e a t o f t h i s p r o p o s i t i o n c h a n g e d t h e c h a r a c t e r o f

C o n g r e s s from a body

o f u n l i m i t e d t o on e o f l i m i t e d p o w e r s .

2.

in a l l c a se s have a n e g a tiv e

Each H ou se s h a l l

on t h e o t h e r

A v a l u a b l e s u g g e s t i o n t o g i v e e a c h H ouse a n e g a t i v e on th e o th e r , c o m m itte e .

" i n a l l c a s e s , " w as made on A u g u s t 6 , by a s p e c i a l T h is was o b j e c t e d t o on t h e g r o u n d s t h a t t h e

49 i n t e r f e r e n c e o f t h e H ou se i n t h e S e n a t e * s t r e a t y - m a k i n g pow er m ig h t h e d i s a s t r o u s a n d t h a t t h e d i s a g r e e m e n t b e t w e e n t h e two H o u s e s w h i l e t h e y w e r e e l e c t i n g a p r e s i d e n t w o u ld c a u s e n e e d ­ l e s s d e la y .

The n e x t d a y ,

t h e p r o p o s a l was v o t e d down.

I f i t h a d s t a y e d i n t h e C o n s t i t u t i o n , n e i t h e r H ouse c o u l d h a v e b e e n g i v e n c e r t a i n s p e c i a l p o w e r s w h ic h a r e now p ossessed . 3.

To e s t a b l i s h t h e same p r i n c i p l e o f r e p r e s e n t a t i o n i n b o t h H ouses When t h e C o n v e n t i o n g o t t o t h e q u e s t i o n o f r e p r e s e n t a ­

t i o n i n t h e N a t i o n a l L e g i s l a t u r e , many w e e k s w e r e s p e n t i n r e a c h in g a d e c is io n ,

and o f t e n ,

d u rin g t h a t t im e , a s a t i s f a c ­

t o r y c o n c l u s i o n was d e s p a i r e d o f .

D u r in g t h e s e d i s c u s s i o n s ,

many c o n t e n d i n g i n t e r e s t s becam e e v i d e n t ,

and l i n e s

of d is­

c r i m i n a t i o n b e t w e e n v a r i o u s p a r t y g r o u p s becam e more and more c l e a r l y d ra w n .

T h o s e b e t w e e n t h e l a r g e s t a t e s p a r t y and t h e

s m a l l w e r e p e r h a p s m o st i n e v i d e n c e . siste d

The l a r g e s t a t e s

in ­

t h a t r e p r e s e n t a t i o n i n b o th H ouses be p r o p o r tio n e d

a c c o r d in g to p o p u la tio n ; w h ile t h e ir o p p o n en ts,

th e sm a ll

s t a t e s , w ere j u s t a s i n s i s t e n t

th a t th e p r in c ip le o f e q u a lity

o f r e p r e s e n ta tio n in C on gress,

e x is tin g a t th is

th e A r t ic le s

o f C o n fe d e r a tio n , be .c o n tin u e d .

w as i n t e n s i f i e d b e c a u s e t h e s m a l l s t a t e s

tim e under

The c o n t r o v e r s y

in s is te d

th a t th e ir

v e r y e x i s t e n c e dep en d ed on t h e i r w in n in g t h e i r p o i n t .

50 On J u n e 9 ,

B r e a r ly c a l l e d a t t e n t i o n t o th e f a c t th a t

r e p r e s e n t a t i o n b a s e d on p o p u l a t i o n w o u ld h e m o st u n j u s t ,

sin c e

V i r g i n i a w o u ld h a v e s i x t e e n d e l e g a t e s t o G e o r g i a * s o n e .

N ever­

th e le ss,

on J u n e 1 1 ,

th e la r g e r s t a t e s

s c o r e d a te m p o r a r y

v i c t o r y when a m o t i o n t o a l l o t t h e r e p r e s e n t a t i o n i n b o t h H ouses a c c o r d in g t o p o p u la t io n p a s s e d i n t h e a f f i r m a t i v e . D u r in g t h e m onth o f J u n e ,

it

s e e m e d t h a t t h e same

p r i n c i p l e o f r e p r e s e n t a t i o n w o u ld b e e s t a b l i s h e d H ouses, b u t,

e a r ly in J u ly ,

In b o th

t h e . s e s s i o n s becam e s o s t o r m y t h a t

a c o m m i t t e e r e p o r t e d t h e G r e a t C o m p ro m ise.

T h is p r o p o s e d t h a t

r e p r e s e n t a t i o n in th e S e n a te be b a se d upon th e p r i n c i p l e o f e q u a lity —a v ic to r y

f o r t h e s m a l l s t a t e s , w h i l e t h e H ouse was

t o be c o n s t i t u t e d upon th e p r i n c i p l e o f p r o p o r t io n a l r e p r e ­ s e n t a t i o n b a s e d upon p o p u l a t i o n - - a v i c t o r y

fo r th e la r g e r

sta tes• 4.

P r o p o s i t i o n t o b a s e r e p r e s e n t a t i o n u p on q u o t a s o f c o n t r i ­ b u tio n The V i r g i n i a P la n p r o p o s e d tw o p r i n c i p l e s a s a p o s s i b l e

b a sis

fo r r e p r e s e n t a t io n in b oth h o u se s o f C o n g ress.

One o f

t h e s e w as t h e odd s u g g e s t i o n o f a w a r d in g a m em b ersh ip among th e s t a t e s

in p r o p o r tio n to th e q u o ta s o f c o n t r ib u t io n .

p r o p o s a l was s o i m p r a c t i c a l t h a t i t w as n e v e r a d o p t e d .

The R epre­

s e n t a t i o n w o u ld h a v e b e e n a f l u c t u a t i n g phenom enon and t h e W e s t e r n s t a t e s w o u ld h a v e b e e n d i s c r i m i n a t e d a g a i n s t .

51 5.

To b a s e r e p r e s e n t a t i o n on w e a l t h A l l p r o p o s i t i o n s w h ic h a d v a n c e d t h e t h e o r y o f r e p r e ­

s e n t a t io n in p r o p o r tio n to w e a lth o f th e I n d iv id u a l s t a t e s w ere s u p p o r t e d b y t h e a r i s t o c r a t i c

p a r tie s,

s u c h a s t h e com­

m e r c i a l and n01d S t a t e ” p a r t i e s . On t h e i n s i s t e n c e

o f M o r r is,

on e o f t h e s t r o n g e s t

a d v o c a t e s f o r r e p r e s e n t a t i o n a c c o r d i n g t o p r o p e r t y , a com ­ m it t e e su b m itted a r e s o l u t i o n g iv in g to r e g u la te

th e l e g is la t u r e a u th o r ity

from t i m e t o t i m e t h e number o f r e p r e s e n t a t i v e s

upon th e p r i n c i p l e s

o f w e a l t h and p o p u l a t i o n .

A m o tio n to

t h a t e f f e c t p a s s e d i n t h e a f f i r m a t i v e on J u l y 1 1 , b u t I t was d e f e a t e d J u l y 1 3 , when t h e w ord ,lw e a l t h " w as s t r u c k o u t i n sp ite

o f M o r r is *

effo rts

to r e t a in i t .

S e n tim e n t i n th e C o n v e n tio n i n fa v o r o f b a s in g r e p r e ­ se n ta tio n ,

i n on e h o u s e o r b o t h , up on w e a l t h was h e l d s t r o n g l y

by c e r t a i n d e l e g a t e s .

The t h i n g t h a t d e f e a t e d t h e p r o p o s a l

was t h e a b s e n c e o f a c c u r a t e d a t a r e l a t i v e

to th e a c tu a l w e a lth

o f th e r e s p e c t iv e s t a t e s . 6.

To b a s e r e p r e s e n t a t i o n u p o n t h e number o f f r e e i n h a b i t a n t s

7.

N egroes n o t to be co u n ted in p o p u la tio n fo r p u rp oses o f r e p r e se n ta tio n

8.

N egroes sh o u ld be c o u n te d eq u a l to w h it e s The p r o p o s i t i o n c o n t a i n e d i n t h e V i r g i n i a P l a n t h a t t h e

r i g h t o f s u f f r a g e b e a p p o r t i o n e d a c c o r d i n g t o t h e num bers o f

52 f r e e i n h a b i t a n t s , b r o u g h t on a s e c t i o n a l d i s p u t e b e t w e e n t h e N o r t h a n d t h e S o u th * make t h i s a l l o t m e n t ,

As s o o n a s t h e N o r t h e r n e r s a t t e m p t e d t o th e d e le g a te s

from t h e S o u t h , d e s i r i n g

t h e a d v a n t a g e s d e r i v e d from t h e pow er o f n u m b e r s , dem anded th a t t h e i r N egroes be cou n ted in p o p u la tio n , o f r e p r e s e n ta tio n , as equal to th e w h ite s .

fo r th e p u rp ose T h ese and t h e i r

a d h e r e n ts d e f e a t e d , a m o tio n t h a t r e p r e s e n t a t i o n be a p p o r ­ t i o n e d among f r e e i n h a b i t a n t s o n l y . On J u l y 12 a n d 1 3 , h o w e v e r , m o t i o n s by B u t l e r a n d C. C» P in c k n e y , r e s p e c t i v e l y ,

th a t b la c k s be in c lu d e d In th e r a t i o

f o r r e p r e s e n t a t i o n e q u a l l y w i t h w h i t e s w e r e d e f e a t e d by a la r g e m a jo r ity . T h eir o p p o n e n ts, s e e in g t h e i r o p p o r tu n it y ,

im m e d ia te ly

moved t o e x c l u d e N e g r o e s from e v e n t h e t h r e e - f i f t h s r a t i o , w h ic h h a d b e e n p r e v i o u s l y a g r e e d t o .

When t h i s m o t i o n c a r r i e d ,

t h e S o u t h e r n p a r t y was s o a r o u s e d by t h e t r e n d o f a f f a i r s

th a t

o n l y a c o m p r o m ise b e t w e e n t h e e x t r e m e s p r e v e n t e d t h e w i t h ­ draw al o f s e v e r a l so u th e r n d e le g a t e s 9.

from t h e C o n v e n t i o n .

F r a n k l i n 1s p r o p o s i t i o n f o r r e p r e s e n t a t i o n When t h e m a t t e r o f r e p r e s e n t a t i o n h a d b e e n a r g u e d f o r

f i v e w eeks w it h o u t d e f i n i t e r e s u l t s ,

and th e d e l e g a t e s d e ­

s p a i r e d o f r e a c h i n g a d e c i s i o n , F r a n k l i n made a n a t t e m p t t o s u g g e s t a s o l u t i o n o f t h e p r o b le m a s f o l l o w s : L et th e s m a l l e s t s t a t e sa y what p r o p o r t io n o f money o r f o r c e i t i s a b l e a n d w i l l i n g t o f u r n i s h f o r t h e g e n e r a l p u r p o s e s o f t h e U n io n .

53 L et a l l th e o th e r s o b lig e th e m se lv e s t o each an eq u a l p r o p o r tio n .

fu r n ish

C o n g r e s s i n t h i s c a s e t o b e c o m p o se d o f a n e q u a l number o f d e l e g a t e s from e a c h s t a t e .

I f t h e j o i n t a n d e q u a l s u p p l i e s s h o u l d on p a r ­ t i c u l a r o c c a s io n s n o t be s u f f i c i e n t , l e t C o n g ress make r e q u i s i t i o n s on t h e r i c h e r a n d more p o w e r f u l s t a t e s fo r fu r th e r a i d s , to be v o l u n t a r i ly a f f o r d e d , le a v in g to each s t a t e th e r i g h t o f c o n s id e r in g th e n e c e s s i t y and u t i l i t y o f t h e a i d d e s i r e d , a n d o f g i v i n g m ore o r l e s s a s i t s h o u l d b e f o u n d p r o p e r . T h is f a n t a s t i c a n d u t t e r l y

im p r a c tic a l p la n r e c e iv e d

a b s o l u t e l y no a t t e n t i o n i n th e C o n v e n tio n . 1 0 . L an ded p r o p e r t y q u a l i f i c a t i o n r e q u i r e d f o r m em b er sh ip 1 1 . D e b t o r s t o b e e x c l u d e d from C o n g r e s s . 1 2 . C o n g r e s s s h a l l h a v e pow er t o e s t a b l i s h u n i f o r m p r o p e r t y q u a lific a tio n s S in c e q u a l i f i c a t i o n s

f o r m e m b er sh ip i n t h e s t a t e l e g i s ­

l a t u r e h a d b e e n som ew hat n u m e r o u s ,

i t w as n a t u r a l t h a t t h e

R a n d o lp h r e s o l u t i o n s , w h ic h p r o v i d e d f o r n o q u a l i f i c a t i o n s except age,

se e m e d i n s u f f i c i e n t .

r e sid e n c e q u a lif ic a t io n s ,

A f t e r a d o p t in g a g e and

t h e C o n v e n tio n p r o c e e d e d t o c o n s i d e r

o th ers. A lm o s t a l l s t a t e c o n s t i t u t i o n s a t t h i s t h e members o f t h e i r l e g i s l a t u r e s

tim e r e q u ir e d

to p o s se ss p ro p erty , but a

m o t i o n t o im p o s e on t h e members o f t h e N a t i o n a l L e g i s l a t u r e a la n d e d p r o p e r ty q u a l i f i c a t i o n and t o d i s q u a l i f y d e b t o r s or

54 p e r s o n s h a v i n g u n s e t t l e d a c c o u n t s w i t h t h e U n i t e d S t a t e s was d efea ted . N e v e r t h e le s s , p ro p erty q u a l i f i c a t i o n s

se e m e d s o im ­

p o r t a n t a r e q u i r e m e n t t h a t a c o m m i t t e e w as i n s t r u c t e d t o c o n s i d e r a n d r e p o r t on p r o p e r o n e s . t h is s u g g e s tio n ,

In ste a d o f fo llo w in g

th e co m m ittee r e f e r r e d t h e t a s k o f e s t a b ­

l i s h i n g u n ifo rm p r o p e r ty q u a l i f i c a t i o n s la tu r e .

As i t

to th e N a tio n a l L e g is ­

se e m e d t o them much s a f e r t o h a v e t h e q u a l i f i ­

c a tio n s s t a t e d in th e C o n s titu tio n ,

t h i s w as n o t a g r e e d t o .

When on A u g u s t 10 C h a r l e s P i n c k n e y ’ s m o t i o n t h a t e a c h member s h o u l d b e r e q u i r e d t o s w e a r t h a t h e p o s s e s s e d a n u n e n ­ cu m b ered e s t a t e

o f a c e r t a i n am ount w as d e f e a t e d , and

R u t l e d g e ’ s m o t i o n t h a t q u a l i f i c a t i o n s b e t h e same a s f o r members o f t h e s t a t e l e g i s l a t u r e s w a s d r o p p e d w i t h o u t a v o t e , no fu r th e r e f f o r t s

t o e s t a b l i s h a p r o p e r ty r eq u ire m en t fo r

C o n g r e ss m e n w e r e m ade. T hese p e r s i s t e n t a tte m p ts t o p la c e i n th e C o n s t it u t io n p ro p erty q u a l i f i c a t i o n s

f o r members o f C o n g r e s s w e r e a p a r t

o f t h e l a r g e r m ovem ent t o h a v e one o r b o t h h o u s e s r e p r e s e n t th e w e a lth o f th e co u n tr y . has been g iv e n above.

The c h i e f r e a s o n f o r t h e i r d e f e a t

The p r o p o s a l t o e x c l u d e d e b t o r s was

f o o l i s h an d t h e C o n v e n t i o n d i d w e l l t o d e f e a t i t .

Su ch a p r o ­

v i s i o n w o u ld h a v e e x c l u d e d R o b e r t M o r r is from t h e S e n a t e when h e l a t e r b ecam e i n v o l v e d i n f i n a n c i a l d i f f i c u l t i e s .

55 13- I n e l i g i b l e

t o h o ld any o th e r o f f i c e under s t a t e

f o r a p e r i o d o f _____

or n a tio n

a f t e r e x p i r a t i o n o f t h e i r te r m

A c c o r d i n g t o t h e C o n s t i t u t i o n , members o f t h e N a t i o n a l L e g is la tu r e are n ot e l i g i b l e

t o o th e r o f f i c e s under th e s t a t e

o r n a t i o n d u r i n g t h e i r te r m o f o f f i c e . The d e l e g a t e s

o f th e C o n s t i t u t i o n a l C o n v e n tio n ,

fe e lin g

t h a t so m e th in g s h o u ld be done to p r e v e n t c o r r u p t io n c a u se d by o f f i c e s e e k e r s , made a n e f f o r t t o e x t e n d t h e t i m e o f i n e l i g i ­ b ility a fter

to o f f i c e under th e s t a t e th e e x p ir a tio n o f t h e ir

or n a t io n fo r a c e r t a i n p e r io d

term .

T h is p r o p o s a l , w h ic h f i r s t a p p e a r e d i n t h e V i r g i n i a P l a n , was f i n a l l y c o n s i d e r e d a n u n w i s e r e s t r i c t i o n

on C o n g r e s s ­

m en, f o r a m o t i o n t o make t h e p e r i o d o f i n e l i g i b i l i t y a fter

on e y e a r

t h e e x p i r a t i o n o f t h e t e r m , w as d e f e a t e d . It

i t h a d b e e n a d o p t e d , n o member o f C o n g r e s s c o u l d

h a v e b e e n a p p o i n t e d t o t h e C a b i n e t o r Supreme C o u r t , a n d n o member c o u l d h a v e b e e n n o m i n a t e d f o r p r e s i d e n t e x c e p t a f t e r u n n ecessary d e la y . 1 4 . Members o f C o n g r e s s t o b e p a i d by t h e i r s t a t e s A c co r d in g t o t h e C o n s t i t u t i o n ,

th e s a la r ie s

o f C on gress­

men a r e f i x e d b y la w a n d p a i d o u t o f t h e N a t i o n a l T r e a s u r y . B efore t h is

d e c i s i o n was r e a c h e d ,

t h e q u e s t i o n w as o f t e n d e ­

b ated . A c c o r d i n g t o t h e V i r g i n i a P l a n o f g o v e r n m e n t , t h e members

56 o f th e N a t io n a l L e g i s l a t u r e w ere t o r e c e i v e

fo r t h e ir s e r v ic e s

a " l i b e r a l ” r e w a r d from a n unnamed s o u r c e .

F r a n k lin , d i s l i k ­

i n g t h e w ord " l i b e r a l , ” h a d t h e w ord " m o d e r a t e ” s u b s t i t u t e d . The n e x t d a y , h o w e v e r ,

t h i s w ord was c h a n g e d t o " f i x e d ” b y a

c o m m i t t e e w h ic h h a d a l s o a d d e d t h a t t h e paym ent was t o b e t a k e n from t h e N a t i o n a l T r e a s u r y . N h en t h i s p l a n was d i s c u s s e d i n t h e C o n v e n t i o n , E lls w o r t h , a lw a y s d e s i r o u s o f m easu res i n c r e a s i n g

th e s tr e n g th

o f s t a t e g o v e r n m e n t s , moved t h a t s a l a r i e s b e drawn from s t a t e tr e a su r ie s.

A l t h o u g h t h e m o t i o n was d e f e a t e d ,

o f D e t a il in c lu d e d i t

in th e ir r ep o rt.

The q u e s t i o n was s e t t l e d fe e lin g

t h e C o m m itte e

on A u g u s t 14 when t h e m a j o r i t y ,

t h a t a n y f i n a n c i a l d e p e n d e n c y o f a C o n g re ssm a n u p on

h i s s t a t e w o u ld c r e a t e a s i t u a t i o n - u n f a v o r a b le t o t h e c e n t r a l g o v ern m en t, d e f e a t e d a m o tio n t h a t t h e s t a t e s pay a l a r g e p a r t o f t h e s a l a r y by a l l o w i n g C o n g r e ss m e n t o draw a v e r y lo w f i x e d s a l a r y from t h e N a t i o n a l T r e a s u r y . The i n s e r t i o n o f t h i s c l a u s e i n t h e C o n s t i t u t i o n w o u ld h a v e w e a k e n e d C o n g r e s s b y m akin g t h e members d e p e n d e n t u p on th e s t a t e s

fo r th e ir s a la r ie s .

The C o n v e n t i o n d i d w e l l t o

d efea t i t . 1 5 . P r o p o sitio n s to f i x

t h e quorum a t a number o t h e r t h a n t h e

m a jo r ity On A u g u s t 6 t h e C o m m itte e o f D e t a i l p r o p o s e d t h a t a

57 quorum f o r p u r p o s e s o f d o i n g b u s i n e s s m a jo r ity o f each h o u se .

An e f f o r t was made by Gorham on

A ugust 1 0 , t o change t h i s

t o a number l e s s

M e r c e r , who a g r e e d w i t h h im , f e l t a llo w e d to f i x

its

O th ers f e l t

i n C o n g r e s s be a

th an a m a jo r ity .

t h a t e a ch h o u se sh o u ld be

own qu oru m . t h a t a t l e a s t a m a j o r i t y o f e a c h H ouse

was a w i s e p r e c a u t i o n a g a i n s t c e r t a i n a b u s e s .

F ew er t h a n

a m a j o r i t y m ig h t g i v e t h e a d v a n t a g e s t o t h e l a r g e r s t a t e s or t o th e c e n t r a l s t a t e s ,

t o w h ic h t h e p l a c e o f m e e t i n g o f

C o n g r e s s w o u ld be m ost c o n v e n i e n t . O pposed t o t h i s w e r e M o r r i s , M e r c e r , K in g , and G e r r y , who f a v o r e d t h e f i x i n g o f a r b i t r a r y f i g u r e s . to f i x

M o r r is moved

t h e quorum i n t h e H ouse a t t h i r t y - t h r e e and i n t h e

S e n a t e a t f o u r t e e n , w h i l e K in g moved t h a t M o r r is 1 num bers be c o n s i d e r e d a minimum, b u t t h a t t h e l e g i s l a t u r e to

i n c r e a s e th e m .

be a t l i b e r t y

G er ry p r o p o s e d a maximum number o f f i f t y

f o r t h e H ouse o f R e p r e s e n t a t i v e s .

None o f t h e p r o p o s a l s

won t h e a p p r o v a l o f t h e C o n v e n t io n and t h e quorum r e m a in e d th e m a jo r ity o f each h o u se . To h a v e f i x e d t h e quorum i n e a c h h o u s e a t l e s s a m a j o r i t y w o u ld h a v e made tw o quorums p o s s i b l e . .fix e d

th a n

To h a v e

i t a t an y a r b i t r a r y number w o u ld n o t h a v e a l l o w e d f o r

t h e grow th o f t h e c o u n t r y .

The C o n s t i t u t i o n a l p r o v i s i o n

was t h e b e s t p o s s i b l e s o l u t i o n .

58 l 6a.

P r o p o s i t i o n t o g i v e C o n g r e s s p ow er t o p a s s a l l la w s w h atsoever

b.

To g i v e C o n g r e s s p o w er t o l e g i s l a t e

in a l l c a ses

fo r

in a l l c a ses

in

t h e g e n e r a l i n t e r e s t o f t h e U n io n c.

To g i v e C o n g r e s s p ow er t o l e g i s l a t e w h ic h t h e s e p a r a t e s t a t e s

d.

To g i v e C o n g r e s s p o w er

a r e in c o m p e te n t to l e g i s l a t e

in a l l ca ses

w h ic h t h e harm ony o f t h e U n i t e d S t a t e s may b e

in

in te r r u p te d

by t h e e x e r c i s e o f i n d i v i d u a l l e g i s l a t i o n A l t h o u g h l a c k o f p ow er p o s s e s s e d by t h e C o n g r e s s u n d e r t h e A r t i c l e s o f C o n f e d e r a t i o n was o n e o f t h e g r e a t e s t e v i l s i n t h e g o v e r n m e n t , few had dream ed o f v e s t i n g C o n g r e s s w i t h th e pow er, s u g g e s t e d i n th e V i r g in ia P la n , a l l cases

i n w h ic h t h e s e p a r a t e s t a t e s

flt o l e g i s l a t e

in

a r e in c o m p e te n t, or

i n w h ic h t h e harm ony o f t h e U n i t e d S t a t e s may be i n t e r r u p t e d by t h e e x e r c i s e o f i n d i v i d u a l l e g i s l a t i o n , ” y e t ,

on May

t h i s r e c e i v e d t h e u n a n im o u s a p p r o v a l o f t h e C o n v e n t i o n . W h ile t h e y l a t e r d rew t h e l i n e on H a m i l t o n fs p l a n t o g i v e C o n g r e s s p o w er t o p a s s a l l la w s w h a t s o e v e r , t h e y d i d a g r e e t o B e d f o r d fs , w h ic h was a l m o s t a s e x t r e m e , a s g r e s s p o w er t o l e g i s l a t e ests

i t g a v e Con­

in a l l c a ses fo r th e g e n e ra l in t e r ­

o f t h e U n io n (and i n a l l c a s e s

i n w h ic h t h e s t a t e s

are

s e p a r a t e l y i n c o m p e t e n t , o r i n w h ic h t h e harm ony o f t h e U n i t e d S t a t e s may be i n t e r r u p t e d by t h e e x e r c i s e o f i n d i v i d u a l le g isla tio n );

t h e s e w ere l o s t

n e v e r t a k e n up a g a i n .

by p o s t p o n e m e n t , f o r t h e y w e re

59 On J u l y 1 7 and 1 8 , t h e p r o p o s i t i o n s t o g i v e C o n g r e s s p ow er t o p a s s a l l

la w s w h a t s o e v e r and t o l e g i s l a t e

in a l l

c a s e s f o r t h e g e n e r a l i n t e r e s t o f t h e U n io n , w h ic h w o u ld h a v e made t h e N a t i o n a l G overnm ent much s t r o n g e r t h a n i t

is

t o d a y , w ere r e j e c t e d . Had a n y o f t h e s e r e s o l u t i o n s , h o w e v e r , f o u n d t h e i r way i n t o t h e C o n s t i t u t i o n , t h e y w o u ld no d o u b t h a v e p r e v e n t ­ ed i t s

r a tific a tio n ,

f o r t h e y i n v o l v e d t h e p o w er o f i n v a l ­

i d a t i n g a l l la w s and a l s o

th e c o n s titu tio n s

o f th e s t a t e s .

1 7 . To g i v e C o n g r e s s p o w er t o n e g a t i v e a l l l a w s p a s s e d by sta tes The u n w i s e and u n j u s t l e g i s l a t i o n o f t h e s t a t e s had been a d e c id in g f a c t o r

in b r in g in g about th e c o n v e n tio n .

T h e i r la w s had b e e n a c o n s t a n t m enace t o t h e t r a n q u i l l i t y o f t h e U n io n . th e s t a t e

As n e a r l y a l l t h e d e l e g a t e s

fe lt

t h a t a c u r b on

l e g i s l a t u r e s m ust be p r o v i d e d , t h e y p a s s e d , w i t h o u t

d e b a te , th e c la u se

in th e s i x t h r e s o lu tio n o f th e V ir g in ia

P la n , g iv in g t o C ongress t h e a u t h o r it y t o n e g a t iv e a l l passed by th e s t a t e s

c o n tr a v e n in g ,

la w s

in t h e ir o p in io n , th e

A r t i c l e s o f U n io n . A f t e r " m o r e m a tu r e c o n s i d e r a t i o n , h o w e v e r , a m o t i o n g r a n tin g to

C on gress su c h e x trem e a u t h o r i t y o v e r s t a t e

la w s

was d e f e a t e d . L a te r e v e n t h e m o tio n t o g r a n t C on gress t h e n e g a t i v e o n l y when t w o - t h i r d s o f t h e members o f e a c h h o u s e g i v e a s s e n t

60 won no f a v o r a s t h e y w e r e by t h i s

tim e a p p r e h e n s iv e l e s t

any

d i r e c t p o w er o f n e g a t i o n o v e r t h e s t a t e la w s w o u ld p r e v e n t t h e a c c e p t a n c y o f t h e new g o v e r n m e n t . B e in g a j u d i c i a l f u n c t i o n , t h i s pow er i s now e x e r ­ c i s e d by t h e F e d e r a l J u d i c i a r y . 1 8 . To g i v e C o n g r e s s pow er t o c a l l f o r t h f o r c e o f t h e U n io n a g a i n s t a n y member o f t h e U n io n f a i l i n g d u ty under th e A r t i c l e s F in a lly , th e s t a t e s

to f u l f i l l

its

th ereo f

th e u se o f fo r c e to check th e p r o p e n sity o f

fr o m p u r s u i n g t h e i r own p a r t i c u l a r

o p p o s itio n to th e in t e r e s t s

in te r e sts

in

o f t h e g e n e r a l g o v e r n m e n t , was

d isc u sse d . One o f t h e d e f e c t s

o f th e A r t ic le s

o f C o n fe d e r a tio n

had b e e n t h e l a c k o f p o w er o f C o n g r e s s t o c o n p e l a n y s t a t e t o c o m p ly w i t h p r o v i s i o n s

o f th e A r t ic l e s ,

o r t o make a n y

r e q u i s i t i o n s o f t r o o p s , or ev en to pay d e b t s . m eet t h i s d e f i c i e n c y ,

In o rd er to

i t was p r o p o s e d i n t h e s i x t h r e s o l u ­

t i o n o f t h e V i r g i n i a P l a n t h a t C o n g r e s s be g i v e n p ow er t o u s e f o r c e a g a i n s t any s t a t e

fa ilin g

u n d e r t h e new C o n s t i t u t i o n .

to f u l f i l l

On J u l y ^1 t h i s

p o s t p o n e d on m o t i o n o f M a d is o n , who f e l t

i t s d u tie s

c l a u s e was

th a t m ilita r y c o e r ­

c i o n i n s u c h a c a s e w o u ld a p p e a r more l i k e a d e c l a r a t i o n o f * 4 war t h a n a n i n f l i c t i o n o f p u n i s h m e n t . T h i s q u e s t i o n n e v e r came up f o r d i s c u s s i o n a g a i n .

In l 8 6 l t h e N a t i o n a l G overn­

ment w i s h e d i t had t h i s p o w er t o u s e f o r c e a g a i n s t s e c e d i n g sta tes .

61 19* To g i v e c e n t r a l G overnm ent p o w er t o a ssu m e s t a t e d e b t s The r e c e n t war had d r a i n e d t h e r e s o u r c e s o f t h e g overn m en ts o f t h e s t a t e s wake a s w e l l .

and had l e f t h e a v y d e b t s

in it s

An e f f o r t was made t o r e q u i r e t h e new c e n t r a l

g o v e r n m e n t t o a ssu m e t h e r e s p o n s i b i l i t y o f t h e s t a t e d e b t s i n c u r r e d f o r t h e common d e f e n s e and t h e g e n e r a l w e l f a r e .

On

A u g u st 1 8 , t h i s w as r e f e r r e d t o a c o m m i t t e e f o r c o n s i d e r a ­ tio n .

T h r e e d a y s l a t e r t h e c o m m it t e e recom m ended t h a t t h e

l e g i s l a t u r e o f t h e U n i t e d S t a t e s b e g i v e n p o w er t o d i s c h a r g e a l l war d e b t s o f t h e U n i t e d S t a t e s o r o f t h e s e v e r a l s t a t e s . No c o n c l u s i o n was r e a c h e d , b u t o n A u g u s t 2 k a m o t io n t h a t ^ a ll d e b ts c o n tr a c te d under th e a u t h o r it y o f C on gress s h a l l be a s v a l i d

a g a i n s t t h e U n ite d S t a t e s un der t h i s

C o n stitu tio n

a s u n d e r t h e C o n f e d e r a c y , 11 was c a r r i e d and now a p p e a r s i n th e C o n stitu tio n . The p r o p o s i t i o n g i v i n g C o n g r e s s p o w er t o assu m e t h e s t a t e d eb ts is fea ted

o n e o f t h e m ost im p o r t a n t p r o p o s i t i o n s d e ­

i n t h e C o n v e n tio n .

pow er i n W a s h i n g t o n f s f i r s t

The e x e r c i s e o f t h e u n g r a n t e d a d m i n i s t r a t i o n se e m e d t o many

t o do v i o l e n c e t o th e C o n s t i t u t i o n . 2 0 . To l e v y r e q u i s i t i o n s ' . D u r i n g t h e R e v o l u t i o n t h e G overnm ent had b e e n p o w e r ­ le ss

t o c o l l e c t m oney, a n d , a l t h o u g h t h e p o w er t o l e v y

r e q u i s i t i o n s w as g r a n t e d b y t h e A r t i c l e s

o f C o n fe d e r a tio n ,

t h e S t a t e s had i n g e n e r a l r e f u s e d o r n e g l e c t e d t o c om p ly

62 w i t h s u c h r e q u e s t s fr o m t h e c e n t r a l g o v e r n m e n t . On June 5> P a t e r s o n i n h i s p l a n o f g o v e r n m e n t made an e f f o r t

to p r e v en t th e r e c u r r e n c e o f t h i s

c a la m ito u s s i t u ­

a t i o n by a d v o c a t i n g a m ethod o f d e p a r t u r e from t h e r u l e f o r m akin g r e q u i s i t i o n s

in th e A r t i c l e s

had g i v e n t h e s t a t e

le g isla tu r e s

o f C o n f e d e r a t i o n w h ic h

th e d u ty o f c o ll e c t i n g th e

r e q u i r e d sum a t t h e e x p e n s e o f t h e U n i t e d S t a t e s . A c c o r d i n g t o t h e new p l a n , C o n g r e s s was t o r e q u i s i t i o n e a c h s t a t e

in

p r o p o r t i o n t o t h e w h o le number o f w h i t e and o t h e r f r e e c i t i ­ zen s,

and i n h a b i t a n t s ,

n o n - c o r a p ly in g s t a t e

and t o d i r e c t t h e c o l l e c t i o n

i n any

i n t h e m anner a u t h o r i z e d b y la w s t o be

p a s s e d b y C o n g r e s s , and w i t h t h e c o n s e n t o f a c e r t a i n p r o ­ p o r tio n o f th e s t a t e s . T h i s p r o p o s a l was d i s c u s s e d and was t w i c e r e f e r r e d t o s p e c i a l co m m ittee s.

U ltim a te ly t h is p r o p o s itio n to g iv e

C o n g r e s s p o w er t o make r e q u i s i t i o n s was a b a n d o n e d . The C o n s t i t u t i o n g i v e s C o n g r e s s pow er t o t a x and t o c o l l e c t t h e sam e.

The p r o p o s i t i o n t o c o n t i n u e t h e o l d m eth od

o f r a i s i n g money b y r e q u i s i t i o n s was w i s e l y a b a n d o n e d . 2 1 . P rop osal to g iv e th e s t a t e s to e m it b i l l s One f a c t o r

o r t h e U n i t e d S t a t e s pow er

o f c r e d it i n t h e •s i t u a t i o n w h ic h had g r e a t l y

in flu ­

e n c e d men t o l o o k f a v o r a b l y on p r o p o s a l s f o r a c h a n g e o f g o v e r n m e n t was t h e e x i s t e n c e o f h a r d t i m e s .

Among o t h e r

63 c o n tr ib u tin g f a c t o r s ,

th e u n r e str a in e d

money had u n d o u b t e d l y had i t s

is s u a n c e o f paper

s h a r e i n m a k in g t i m e s h a r d .

T h u s , when t h e C o m m ittee of* D e t a i l p r e s e n t e d f o r t h e i r c o n ­ s i d e r a t i o n a c l a u s e g i v i n g C o n g r e s s p o w er t o e m i t b i l l s th e c r e d i t o f th e U n ite d S t a t e s , m onied i n t e r e s t s

on

a b r i e f c o n t e s t betw een t h e

and t h e f r i e n d s o f p a p e r money e n s u e d .

D e s i r i n g to d isa r m th e governm ent o f su ch pow er, th e c l a u s e was s t r i c k e n o u t on m o t i o n o f G. M o r r i s , who f e l t th a t such b i l l s

w ere u n n e c e s s a r y i f

t h e U n i t e d S t a t e s had

c r e d i t and t h e p o w er t o b orrow m o n ey . On A u g u s t 2 8 t h e r e was s t i l l

on r e c o r d i n a c o m m i t t e e

r e p o r t , a c l a u s e w h ic h p e r m i t t e d s t a t e s t o e m i t b i l l s

of

c r e d it w ith th e co n sen t o f th e N a tio n a l L e g is la t u r e .

On

t h a t d a y a c l a u s e m aking t h i s p r o h i b i t i o n a b s o l u t e was s u b ­ stitu te d

f o r t h e o n e m ak in g t h e m e a s u r e a l l o w a b l e .

T hus,

t h e p r o p o s i t i o n s t o g i v e C o n g r e s s d i r e c t o r i n d i r e c t pow er to em it b i l l s

w ere d e f e a t e d .

T h i s s o l u t i o n o f t h i s p a r t i c u l a r p r o b le m was n o t sa tisfa c to r y . issu e b i l l s

I t d i d n o t d e n y t o C o n g r e s s t h e p ow er t o

o f c r e d i t , but n e it h e r d id i t

g ra n t th e pow er.

In L i n c o l n fs a d m i n i s t r a t i o n t h e p o w er was e x e r c i s e d when t h e G reenbacks w ere i s s u e d .

One d e c is i< ? n o f t h e Suprem e

C o u rt d e c l a r e d t h e la w u n c o n s t i t u t i o n a l ^ ; a s e c o n d d e c i s i o n ,

^ H epburn v s .

G r isw o ld , 1869-

64 a y ea r l a t e r , pronounced i t

c o n stitu tio n a l.

2

A so lu tio n

w h ic h l e a v e s e v e n t h e Suprem e C ou rt i n d o u b t c a n n o t b e p r o ­ nounced s a t i s f a c t o r y . 2 2 . A p p r o p r ia tio n b i l l s

to o r ig in a te

i n t h e H ouse

The C o n s t i t u t i o n g i v e s t o t h e H ouse o f R e p r e s e n t a ­ tiv e s

t h e p ow er t o o r i g i n a t e r e v e n u e b i l l s .

D u rin g th e

C o n v e n t io n a p e r s i s t e n t e f f o r t was made t o l i m i t t h e pow er o f m ak in g a p p r o p r i a t i o n s t o t h e same H o u s e . th is is

U ltim a te ly

l a s t p r o p o s i t i o n was d e f e a t e d , w h e t h e r w i s e l y o r n o t

a d e b a ta b le q u e s tio n .

tio n b i l l s ,

Many p e o p l e t h i n k t h a t a p p r o p r i a ­

as w e l l a s r e v e n u e b i l l s ,

must o r i g i n a t e

in th e

Lower H o u s e . 23 • To g i v e C o n g r e s s p o w er t o t a x e x p o r t s U nder t h e A r t i c l e s

o f C o n fe d e r a tio n t h e t h i r t e e n

s t a t e s , h a v i n g had t h e r i g h t t o t a x b o t h t h e i n p o r t s and e x p o r t s o f t h e i r n e i g h b o r s , had p r e y e d u p o n e a c h o t h e r * s com m erce. The C o n v e n t i o n was a g r e e d t h a t t h e s t a t e s l o n g e r h a v e t h e p o w er t o l e v y t h e s e t a x e s ,

s h o u l d no

but th e q u e s t io n

w h ic h d i s t u r b e d many members was w h e t h e r t h i s p o w e r , l o d g e d i n - t h e N a t i o n a l G o v e r n m e n t, w o u ld p r o t e c t t h e s t a t e s e a c h o t h e r o r w o u ld e n a b l e t h e N a t i o n a l G overnm ent t o

^ Knox v s . L e e , 1 8 7 0 .

a g a in st

65 opp ress th e s t a t e s

b y l e v y i n g t a x e s w h ic h l a c k e d u n i f o r m i t y ,

and t h u s t o f a v o r o n e s t a t e b y d i s c r i m i n a t i n g a g a i n s t a n ­ o th er. The p o w er t o

l e v y im p o r t t a x e s was g r a n t e d C o n g r e s s ,

b u t , when t h e p r o p o s a l was made i n t h e C o n v e n t i o n t o g i v e C o n g r e s s p o w er t o t a x e x p o r t s a s w e l l ,

i t was d e f e a t e d .

24 . To g i v e C o n g r e s s p o w er t o make p e a c e On A u g u s t 1 7 > a f t e r C o n g r e s s h ad b e e n g i v e n t h e p ow er t o d e c l a r e w a r , B u t l e r moved t o add t h e pow er t o make p e a c e as w e l l .

T h is m o t i o n w as d e f e a t e d b y u n a n im o u s v o t e a s i t

was f e l t

t h a t t h e H ouse o f R e p r e s e n t a t i v e s was t o o nu m erous

a body t o b e e f f e c t i v e

in such d e l i b e r a t i o n s .

As a r e s u l t

t h e C o n s t i t u t i o n g i v e s C o n g r e s s t h e p o w er t o make w ar b u t not p eace.

The l a t t e r p o w er i s

make t r e a t i e s , w h ic h i s

im p lie d in th e a u t h o r it y t o

l o d g e d i n t h e P r e s i d e n t and t h e

S en a te. The c o u n t r y h a s n e v e r s u f f e r e d p r o p o sitio n d isc u sse d

fro m t h e d e f e a t o f t h e

in t h i s p aragrap h .

In 1 9 2 1 t h e Con­

g r e s s d e c l a r e d t h e war w i t h Germany a t a n e n d , a f t e r w h ic h t h e P r e s i d e n t n e g o t i a t e d and t h e S e n a t e r a t i f i e d

a trea ty

of peace. 2 5 - To e x p e l a member by a s i m p l e m a j o r i t y A c co r d in g t o th e C o n s t i t u t i o n ,

a member o f e i t h e r

h o u s e may be e x p e l l e d w i t h t h e c o n c u r r e n c e o f t w o - t h i r d s o f

its

m em bers. A c l a u s e g i v i n g t h e m a j o r i t y o f a quorum t h e r i g h t

t o e x p e l was p r e s e n t e d b y a s p e c i a l c o m m i t t e e . sid e r e d th a t t h is

I t was c o n ­

r i g h t t o e x p e l was t o o i m p o r t a n t t o

be

e x e r c i s e d b y a b a r e m a j o r i t y , and M a d is o n rs m o t i o n r e q u i r i n g a t w o - t h i r d s m a j o r i t y i n c a s e s o f e x p u l s i o n p a s s e d and was p la c ed in th e C o n s t it u t io n . 2 6 . To e n a c t su m p tu a r y l a w s An e f f o r t was made by Mason t o e n a b l e C o n g r e s s t o e n a c t su m p tu a r y la w s r e s t r i c t i n g p r i v a t e e x p e n d i t u r e on d r e s s and o t h e r l u x u r i e s and r e g u l a t i n g p r i c e s o f comm odi­ tie s

and w a g e s .

he d id n o t l o s e

H is m o t i o n t o t h a t e f f e c t was d e f e a t e d , b u t sig h t of h is g o a l,

fo r,

on S e p te m b e r 135, h e

d e l i v e r e d a d i s s e r t a t i o n o n t h e e x t r a v a g a n c e o f o u r m a n n e r s, t h e e x c e s s i v e co n su m p tio n o f f o r e i g n s u p e r f l u i t i e s , n e c e ssity of r e s tr ic tin g

th ese.

and t h e

He moved t h a t a c o m m it t e e

b e a p p o i n t e d t o r e p o r t means o f e n c o u r a g i n g by a d v i c e , and by t h e i n f l u e n c e o f e x a m p le s o f t h e members o f t h e C o n v en ­ tio n ,

such v i r t u e s

a s econ om y and f r u g a l i t y .

T h is was

a g r e e d t o w i t h o u t d e b a t e , b u t t h e c o m m it t e e n e v e r r e p o r t e d . M a so n ’s e f f o r t s w o u ld h a v e b e e n t a k e n m ore s e r i o u s l y , no d o u b t , had he t h o u g h t o f t a x i n g l u x u r i e s v i d e som e o f t h e much n e e d e d r e v e n u e .

in ord er t o p r o ­

67 2 7 . To g r a n t c h a r t e r s o f i n c o r p o r a t i o n On S e p te m b e r 14 w hen t h e C o n v e n t io n was d i s c u s s i n g t h e p o w er “t o e s t a b l i s h

.

to

" c u ttin g C a n a ls ."

i n c l u d e t h e p o w er o f

fu r th e r su g g e stio n s

.

. p o s t r o a d s ," F r a n k lin w ish ed In o rd er to a v o id

i n d e t a i l , M a d iso n moved t o e n l a r g e t h e

m o t io n s o a s t o g i v e C o n g r e s s p o w er "to g r a n t c h a r t e r s o f in c o r p o r a tio n .

.

.

."

Among t h e o b j e c t i o n s made t o t h i s

p r o p o s i t i o n w ere t h e s t a t e m e n t s t h a t su c h a g e n e r a l g r a n t o f p ow er m ig h t b e i n t e r p r e t e d t o i n c l u d e t h e c h a r t e r i n g o f a b a n k and t h e g r a n t i n g o f m e r c a n t i l e m o n o p o l i e s .

The m o t i o n

t o a u t h o r i z e t h e c o n s t r u c t i o n o f c a n a l s was d e f e a t e d b y a v o te o f e ig h t to th r e e . The p r o p o s a l t o g i v e C o n g r e s s p o w er t o g r a n t c h a r t e r s o f i n c o r p o r a t i o n was d e f e a t e d by t h e sam e v o t e . T h i s was o n e o f t h e m o s t i m p o r t a n t o f a l l o f t h e p r o ­ p o s itio n s d efea ted

i n th e C o n v e n tio n .

W h ile i t s d e f e a t d i d

n o t p r e v e n t W a s h i n g t o n ' s a d m i n i s t r a t i o n from c h a r t e r i n g t h e f i r s t U n ite d S t a t e s

bank, t h i s

a c t io n aroused b i t t e r d e b a te

and d i v i d e d t h e A m e r ic a n p e o p l e . or even h e lp f u l,

i t w o u ld h a v e b e e n much b e t t e r t o ' g r a n t

p o w er t o e s t a b l i s h in te r p r e ta tio n ,

I f t h e Bank was n e c e s s a r y ,

it d e fin ite ly

in th e C o n s titu tio n .

B roa d

b a s e d upon t h e d o c t r i n e o f i m p l i e d p o w e r s ,

t e n d s t o make o u r w r i t t e n C o n s t i t u t i o n l e s s w r i t t e n . 2 8 . To c u t c a n a l s A t t h e t i m e t h e C o n v e n t i o n was h e l d ,

th e need fo r

68 s e c u r i n g e a s y c o m m u n ic a t io n b e t w e e n t h e s t a t e s

and, e s p e c ia l­

l y , w i t h t h e new s e t t l e m e n t s o f t h e w e s t was o f p ara m ou n t im p o r ta n c e . The p r o p o s i t i o n by F r a n k l i n t o g i v e C o n g r e s s pow er to c o n s tr u c t c a n a ls has been d is c u s s e d a b o v e . fea ted , la te r

I t was d e ­

b u t i s m e n t i o n e d h e r e b e c a u s e t h e q u e s t i o n came up

in C o n v e n tio n w it h t h e g e n e r a l s u b j e c t o f i n t e r n a l

im p r o v e m e n t s .

The C o n v e n t i o n made a s e r i o u s m i s t a k e i n n o t

c o n f e r r i n g u p o n C o n g r e s s p o w er t o c o n s t r u c t c a n a l s o r ,

b etter,

t h e p ow er t o g r a n t c h a r t e r s o f i n c o r p o r a t i o n , w h ic h w o u ld have in c lu d e d th e s u b j e c t o f c a n a ls . 2 9 . To e s t a b l i s h a u n i v e r s i t y I t was p r o p o s e d s e v e r a l t i m e s i n C o n v e n t i o n , e s p e c i a l ­ l y b y M a d iso n and C h a r l e s P i n c k n e y , t o g i v e C o n g r e s s pow er to e s t a b l i s h a N a tio n a l U n iv e r s ity . o n ly fo u r a f f ir m a t iv e v o t e s . never e sta b lish e d

The p r o p o s i t i o n r e c e i v e d

W h ile t h e U n i t e d S t a t e s h a s

such a U n iv e r s it y ,

th e absence o f a d e f in ­

i t e g r a n t o f p ow er w o u ld n o t s t a n d i n t h e way t o d a y i f t h e r e was an o v e r w h e lm in g demand f o r t h e i n s t i t u t i o n .

The d o c t r i n e

o f i m p l i e d p o w e r s w o u ld be w a r r a n t e n o u g h . 3 0 . M a d i s o n Ts l i s t

o f p o w e r s t o be g i v e n t o t h e N a t i o n a l

L e g i s l a t u r e - - n o t a d o p ted A f t e r t h e r e p o r t o f t h e C o m m ittee o f D e t a i l , made o n

^ Supra, p. 67*

69 A u g u st 6 , a fe w members o f t h e C o n v e n t i o n , d i s a p p o i n t e d th e absence o f c e r ta in p r o v is io n s , s e v e r a l new p o w e r s f o r C o n g r e s s . m it te d t o t h e co m m ittee f o r i t s

in

l a i d b e f o r e th e group T h ese w ere t h e n to be s u b - 5

fu r th e r c o n sid e r a tio n .

Among t h e s e f a v o r i n g an i n c r e a s e

in t h e pow ers o f

C o n g r e s s was M a d iso n w h o , on A u g u s t 1 8 , s u b m i t t e d a l i s t n i n e p o w e r s w h ic h h e t h o u g h t m ig h t w i s e l y be g r a n t e d t o gress.

of Con­

In a d d i t i o n t o t h e pow ers to g r a n t c h a r t e r s o f i n ­

c o r p o r a t i o n and t o e s t a b l i s h a N a t i o n a l U n i v e r s i t y , d i s c u s s e d above,

4

he s u g g e s t e d g i v i n g C on gress pow ers

tt to d isp o se o f

u n a p p r o p r i a t e d l a n d o f t h e U n i t e d S t a t e s , ff and t o t e m p o r a r y g o v e r n m e n t s f o r new s t a t e s

in s titu te

a r is in g th e r e in .

He

a l s o p r o p o s e d t o a u t h o r i z e t h e e x e c u t i v e t o p r o c u r e and h o l d f o r t h e u s e o f t h e U n ite d S t a t e s la n d ed p r o p e r ty f o r th e e r e c t i o n o f f o r t s , m a g a z i n e s , and o t h e r n e c e s s a r y b u i l d i n g s . None o f t h e s e s u g g e s t i o n s w e r e a d o p t e d . 3 1 - C h a r l e s P i n c k n e y fs l i s t

o f pow ers to be g i v e n to th e

N a t i o n a l L e g i s l a t u r e —n o t a d o p t e d On A u g u st 2 0 ,

C h a r l e s P i n c k n e y s u b m i t t e d e l e v e n new

p o w e r s f o r C o n g r e s s .'

H is p r o p o s a l s ,

l a t e r r e fe r r e d to th e

C o m m ittee o f D e t a i l , d i d n o t a l l g a i n t h e a p p r o v a l o f t h e m a jo r ity . ( l ) In a d d i t i o n t o t h e p o w er t o g r a n t c h a r t e r s o f in c o r p o r a t io n , h e s u g g e s te d g i v in g C ongress c e r t a i n o t h e r p o w er s a s f o l l o w s :

^ Supra, p . 6 8 .

70 ( 2 ) Each b r a n c h o f t h e L e g i s l a t u r e , as w e l l a s t h e su p rem e e x e c u t i v e s h a l l h a v e a u t h o r i t y t o r e q u i r e t h e o p i n i o n s o f t h e su p r em e c o u r t u p on i up o r t a n t q u e s t i o n s o f l a w , and up on s o l e m n o c c a s i o n s . ( 3 ) The m i l i t a r y s h a l l a l w a y s be s u b o r d i n a t e t o t h e C i v i l p o w e r > and n o g r a n t s o f money s h a l l be made b y t h e L e g i s l a t u r e f o r s u p p o r t i n g m i l i t a r y la n d f o r c e s , f o r m ore t h a n o n e y e a r a t a t i m e . ( 4 ) The L e g i s l a t u r e o f t h e U n i t e d S t a t e s s h a l l h a v e t h e p o w e r s o f m aking t h e g r e a t s e a l w h ic h s h a l l be k e p t by t h e P r e s i d e n t o f t h e U n i t e d S t a t e s , o r i n h i s a b s e n c e by t h e P r e s i d e n t o f t h e S e n a t e , t o b e u s e d by them a s t h e o c c a s i o n may r e q u i r e . It s h a l l be c a l l e d t h e g r e a t s e a l o f t h e U n i t e d S t a t e s and s h a l l be a f f i x e d t o a l l l a w s . ( 3 ) No r e l i g i o u s t e s t o r q u a l i f i c a t i o n s h a l l e v e r be a n n e x e d t o an y o a t h o f o f f i c e u n d e r t h e a u t h o r ­ i t y o f th e U n ite d S t a t e s . The f i r s t

f o u r p r o p o s i t i o n s w e r e r e j e c t e d b y t h e com­

m i t t e e , a s w e l l a s a f i f t h p r o p o s i t i o n w h ic h was a d e n i a l o f pow er i n s t e a d o f a g r a n t o f p ow er. 3 2 . To g i v e o n e p e r s o n t h e r i g h t t o c a l l f o r y e a s and n a y s A c c o r d i n g t o t h e C o n s t i t u t i o n t h e y e a s and n a y s o f t h e members o f e a c h h o u s e may b e c a l l e d

f o r on a n y q u e s t i o n a t

t h e d e s i r e o f o n e - f i f t h p a r t o f t h e members p r e s e n t . T h is c l a u s e , p r e s e n t e d

i n t h e r e p o r t o f t h e C o m m ittee

o f D e t a i l on A u g u s t 6 , was o b j e c t e d t o b y M o r r is o n t h e g r o u n d t h a t t h e s m a l l s t a t e s w o u ld b e a t a d i s a d v a n t a g e i f i t w ere n e c e s s a r y to g e t th e c o n c u r re n c e o f such a la r g e p r o p o r tio n ;

He u r g e d t h a t a n y i n d i v i d u a l o u g h t t o b e a u t h o r ­

i z e d t o c a l l f o r t h e y e a s and n a y s . c l a u s e t o t h a t e f f e c t was d e f e a t e d .

H is m o t i o n t o amend t h e

71 In r e t r o s p e c t ,

i t may b e s a i d t h a t M o r r is * m o t i o n was

f o o l i s h and t h e C o n v e n t io n a c t e d w i s e l y

in d e f e a t in g

it.

In

p r a c t i c e t h e y e a s and n a y s a r e c a l l e d

f o r in C on gress to d a y

l a r g e l y as a m easure o f o b s t r u c t i o n .

To h a v e a l l o w e d o n e

member t o d e l a y t h e w ork o f e i t h e r H ouse b y e x e r c i s i n g t h i s p o w er w o u ld h a v e b e e n a g r e a t m i s t a k e . 3 3 . To p r e v e n t t h e c e n t r a l G overnm ent fro m i m p a i r i n g t h e o b lig a tio n o f co n tra cts Among t h e p r o h i b i t i o n s

la id

on t h e s t a t e s

is

th a t o f

p a s s i n g la w s i m p a i r i n g t h e o b l i g a t i o n o f c o n t r a c t s . G e r r y , c o m m en tin g o n t h e i m p o r t a n c e o f p u b l i c f a i t h , commended t h i s

c l a u s e p l a c i n g on s t a t e s

im p a irin g c o n t r a c t s . a lik e p r o h ib itio n ,

a r e s t r a i n t from

He moved t h a t C o n g r e s s b e l a i d u n d e r b u t h i s m o t i o n was n o t e v e n s e c o n d e d .

W h ile C o n g r e s s h a s s e l d o m , o b lig a tio n s o f c o n tr a c ts,

if

e v e r , v io la t e d th e

i t w o u ld s e e m f a i r t o s a y t h a t t h e

C o n v e n t io n made a g r e a t m i s t a k e i n r e j e c t i n g G e r r y * s p r o p o ­ sitio n . 3 ^ . To d e n y t h e p o w er o f p a s s i n g n a v i g a t i o n a c t s w i t h o u t t h e c o n se n t o f tw o - t h ir d s m a jo r ity o f b oth h o u se s U nder t h e A r t i c l e s

o f C o n fe d e r a tio n th e r ig h t t o

r e g u l a t e t r a d e and com m erce was v e s t e d th e p r o v isio n th a t th e l e g i s l a t i v e its

own l i m i t s b e n o t

i n C ongress but w it h

r i g h t o f any s t a t e w i t h i n

in f r in g e d or v i o l a t e d .

B ecau se o f

72 t h is r e s e r v a tio n o f r ig h ts to th e s t a t e s ,

t h e y had r e g u l a t e d

commerce w i t h o u t r e g a r d f o r t h e i n t e r e s t s o f t h e c e n t r a l governm ent o r f o r t h o s e o f o th e r s t a t e s .

T h is p r e v e n t e d

C o n g r e s s fr o m p a y i n g t h e N a t i o n a l d e b t and a r o u s e d d i s s e n ­ s i o n among t h e s t a t e s . I t was a g r e e d b y a m a j o r i t y o f d e l e g a t e s

th a t th e

c e n t r a l g o v e r n m e n t s h o u l d h a v e p o w er t o r e g u l a t e c om m erce. When t h e q u e s t i o n was c o n s i d e r e d o n A u g u st 29> a m o t i o n t h a t no a c t s o f t h e L e g i s l a t u r e f o r t h e p u r p o se o f r e g u l a t ­ i n g t h e commerce o f t h e U n i t e d S t a t e s w i t h f o r e i g n p o w e r s o r among t h e s e v e r a l s t a t e s

s h a l l be p a s s e d w it h o u t t h e c o n ­

s e n t o f t w o - t h i r d s o f t h e members o f e a c h h o u s e , was d e ­ f e a t e d a s was M a so n f s m o t io n t h a t no la w i n t h e n a t u r e o f a n a v i g a t i o n a c t be p a s s e d b e f o r e l 8 0 8 w i t h o u t t h e c o n s e n t o f tw o -th ir d s o f each branch o f th e l e g i s l a t u r e . S ou th ern d e le g a t e s

asked t h a t th e m a j o r it y r e q u ir e d

in C ongress to p a s s n a v ig a t io n at tw o -th ir d s

(c o m m e r c ia l) a c t s

be p la c e d

in o r d e r t o p r e v e n t n o r th e r n m a j o r i t i e s 1

p u t t i n g an end t o t h e i m m i g r a t i o n o f s l a v e s . v e r s y was s e t t l e d

The c o n t r o ­

by t h e s l a v e t r a d e and com m erce c o m p r o m is e ,

by t h e te r m s o f w h ic h C o n g r e s s was g i v e n p ow er t o r e g u l a t e comm erce b y a s i m p l e m a j o r i t y b u t c o u l d n o t p u t an end t o th e

im p o r ta tio n o f s la v e s p r io r to 1 8 0 8 .

CHAPTER V THE UPPER HOUSE 1.

The name o f t h e u p p e r h o u s e ( 1 ) The New J e r s e y P l a n c a l l e d

f o r no secon d branch

(2 ) C a lled

Second Branch i n

th e V i r g in ia P la n

( 3 ) C a lled

S e c o n d B r a n ch i n

t h e 19. R e s o l u t i o n s

(4 ) C a lled

S econ d Branch i n

t h e 23 R e s o l u t i o n s

(5 ) C a lled

S e n a t e i n H a m il t o n * s

P la n

( 6 ) C a l l e d S e n a t e i n t h e R e p o r t o f t h e C o m m ittee o f D e t a i l The u p p e r b r a n c h o f t h e N a t i o n a l L e g i s l a t u r e , w h ic h i s now known as t h e S e n a t e , was' f i r s t

c a l l e d t h e Second B ranch

i n t h e V i r g i n i a P la n *

T h i s was n o t c h a n g e d i n t h e

" N in e t e e n

R e so lu tio n s" or in th e

" T w en ty -th ree R e s o l u t i o n s , " b u t on

Jun e 18 H a m ilt o n i n h i s p l a n f o r g o v e r n m e n t r e f e r r e d t o t h e upper branch a s t h e S e n a te , in a lm o st a l l th e s t a t e s .

a name a p p l i e d t o t h e u p p e r h o u s e A l t h o u g h t h e C o m m ittee o f D e t a i l

d i d n o t c o n s i d e r t h e H a m il t o n P l a n , " S e n a te " i n

its

r e p o r t o f A ugust 6 .

i t d i d u s e t h e te r m T h i s was a c c e p t e d a s

t h e p r o p e r t e r m and was h e n c e f o r t h u s e d W h ile t h e t e r m

in t h e C o n v e n tio n .

"Second B ran ch " may n e v e r h a v e b e e n

i n t e n d e d a s a name f o r t h e s e c o n d h o u s e ,

it

r e m a in s o n e o f

t h e m ost c u r i o u s o f t h e many p r o p o s a l s d e f e a t e d v e n tio n .

i n t h e Con­

7^ 2.

The s i z e o f t h e S e n a t e : D iffic u ltie s

T hree r e p r e s e n t a t i v e s p e r s t a t e

a tte n d e d upon t h e c o n t e s t c o n c e r n in g t h e

r e p r e se n ta tio n each s t a t e

sh o u ld h a v e in t h e C on gress o f th e

new G o v e r n m e n t, and came n e a r b r e a k i n g up t h e C o n v e n t i o n . More t h a n o n c e , d e l e g a t e s g a t h e r e d i n t h e C o m m ittee o f t h e W hole o r i n s p e c i a l c o m m i t t e e s s t r u g g l e d t h r o u g h t h i s p r o b ­ le m i n a n e f f o r t t o e v o l v e som e sch em e w h ic h w o u ld s a t i s f y m ost o f t h e s t a t e s , b u t s e c t i o n a l i n t e r e s t s

of th e E ast,

S o u t h , o r W est i n t e r f e r e d w i t h t h e s e l e c t i o n o f a m e t h o d . O n ly b y p e r s e v e r e n c e w e r e t h e o b s t a c l e s o v e rc o m e and a c c e p t ­ a b l e a d j u s t m e n t s m ade. The e s t a b l i s h m e n t o f a p l a n f o r f u t u r e r e p r e s e n t a t i o n i n t h e S e n a t e a l o n e came i n f o r i t s

sh are o f d i f f i c u l t i e s .

Soon a f t e r s t a t e e q u a l i t y o f r e p r e s e n t a t i o n f o r t h e S e n a te h ad b e e n a g r e e d u p o n ,

i t was r e a l i z e d t h a t u n d e r t h i s p r o v i ­

s i o n e a c h s t a t e was t o v o t e a s a u n i t a s i n t h e C o n g r e s s o f th e C o n fe d e r a tio n .

The o p p o n e n t s o f t h e s t a t e u n i t m ethod

i m m e d i a t e l y made e f f o r t s

t o change th e sy s te m .

M o r r is and

K in g , n e i t h e r o f whom f a v o r e d e q u a l i t y o f v o t i n g p o w e r , moved as a c o n c i l i a t o r y m e a s u r e , t h a t r e p r e s e n t a t i o n

in th e

S e n a t e c o n s i s t o f t h r e e members fro m e a c h s t a t e , who w e r e t o vo te per c a p ita .

T h is was d e f e a t e d , and a m o t i o n t o a l l o w

e a c h s t a t e tw o r e p r e s e n t a t i v e s who s h o u l d v o t e p e r c a p i t a was c a r r i e d .

75 T od ay when e a c h s t a t e h a s tw o S e n a t o r s , t h e y f r e ­ q u e n tly r ep re sen t o p p o site p o l i t i c a l p a r t i e s , w h ic h r e a l l y n u l l i f i e s

a c o n d itio n

t h e s t a t e fs v o t i n g p o w e r .

I f th e

d e fe a te d p r o p o s itio n fo r g iv in g each s t a t e th r e e S en a to rs had c a r r i e d ,

th e v o t e o f a s t a t e co u ld n o t he l o s t

e q u a l d i v i s i o n o f h e r S e n a t o r s , as i s 5-

by an

now t h e c a s e .

P r i n c i p l e o f r e p r e s e n t a t i o n In t h e u p p e r h o u s e :

C h a rle s

P i n c k n e y !s s u g g e s t i o n s C h a r l e s P i n c k n e y , who was o p p o s e d t o ta tio n

i n t h e S e n a t e , p r o p o s e d , on J u n e 8 , t h a t t h e s t a t e s

be d i v i d e d siz e s.

equal rep resen ­

in to th r ee c la s s e s

The f i r s t

c la s s

a c c o r d in g to t h e i r r e s p e c t i v e

s t a t e s w e r e t o s e n d t h r e e members

t o t h e S e n a t e ; t h e s e c o n d , tw o m em b ers; and t h e t h i r d one e a c h .

c la s s,

I n o r d e r t o d e t e r m i n e t h e number t h a t e a c h s t a t e

was e n t i t l e d

to ,

an e s t i m a t e o f t h e i m p o r t a n c e o f e a c h s t a t e

was t o be t a k e n a t f i x e d p e r i o d s .

T h i s m o t i o n f o r an u n ­

e q u a l number o f v o t e s fro m t h e s t a t e s was d e f e a t e d w h en t h e s p e c i a l c o m m i t t e e r e p o r t i n g on J u n e 13 o m i t t e d

it.

The e q u a l i t y o f r e p r e s e n t a t i o n i n t h e S e n a t e h a s a l ­ w ays b e e n made a g r i e v a n c e by t h e l a r g e r s t a t e s . i n t e r e s t i n g p r o p o s i t i o n had much m e r i t . ad op ted in J u n e, h o w ev er,

If

P i n c k n e y !s

i t h ad b e e n

i t w o u ld h a v e b e e n a b a n d o n ed i n

J u l y when t h e G r e a t C om p rom ise, r e q u i r i n g e q u a l r e p r e s e n t a ­ tio n

I n t h e u p p e r h o u s e , was a g r e e d t o .

A bout f i v e w e e k s l a t e r ,

P i n c k n e y a g a i n moved f o r an

unequal r e p r e se n ta tio n o f th e s t a t e s

in th e upper h o u se .

A c c o r d i n g t o t h e p l a n , t h e number o f r e p r e s e n t a t i v e s

for

e a c h s t a t e was s e t a r b i t r a r i l y .

F or e x a m p l e , D e la w a r e and

Rhode I s l a n d w e r e t o b e a l l o t t e d

one r e p r e s e n t a t iv e e a ch ;

New H a m p sh ire and New J e r s e y ,

tw o e a c h ; N o r t h and S o u t h

C a r o lin a w ere to be g iv e n t h r e e e a c h , M a ssa c h u se tts fo u r ; w h i l e V i r g i n i a , t h e l a r g e s t s t a t e , was t o h a v e f i v e r e p r e ­ se n ta tiv e s .

In s p i t e

o f r e c e i v in g th e p o w e r fu l b a c k in g o f

M a d is o n , K in g , and o f W i l s o n , who had s e c o n d e d t h e m o t i o n , t h e p r o p o s i t i o n was d e f e a t e d . T h i s s u g g e s t i o n i n c l u d e d no p l a n f o r d e t e r m i n i n g t h e number o f S e n a t o r s t o be aw arded t o t h e new s t a t e s , a d ju stin g r e p r e se n ta tio n to

and f o r

f u t u r e grow th o f p o p u l a t i o n .

A l l f u r t h e r s u g g e s t i o n s s u c h as t h e s e o f P in c k n e y w e r e a b a n d o n ed i n J u l y w hen t h e G r e a t C om p rom ise, r e q u i r i n g e q u a l r e p r e s e n t a t i o n i n t h e u p p e r h o u s e , was a d o p t e d . 4.

The u p p e r h o u s e s h o u l d r e p r e s e n t p r o p e r t y I n o r d e r t o s e c u r e a d e q u a t e p r o p e r t y p r o t e c t i o n and

p ro p erty r ig h t s

i n t h e new G o v er n m e n t, s e v e r a l d e l e g a t e s ,

among whom w e r e M a d is o n , G e r r y , M o r r i s , and M ason, t h o u g h t th a t th e S e n a te , a t l e a s t ,

sh o u ld r e p r e s e n t p r o p e r ty .

A l­

m ost a l l t h e s t a t e c o n s t i t u t i o n s had im p o se d p r o p e r t y q u a l i ­ f i c a t i o n s upon s t a t e

s e n a t o r s , b u t , a s t h i s had n o t p r e v e n t e d

77 t h e p a s s i n g o f much u n j u s t l e g i s l a t i o n , fu sed to adopt t h e i r T h is q u e s t i o n ,

th e co n v e n tio n r e ­

id e a . c o n s i d e r e d many t i m e s w i t h o u t d e f i n i t e

r e s u l t s , was f i n a l l y d e c i d e d o n A u g u s t 1 0 when t h e C o n v e n t i o n r e j e c t e d b o t h P i n c k n e y ’s m o t i o n t h a t members o f t h e L e g i s ­ la tu r e be r eq u ire d t o

sw ear t h a t

f,t h e y w e r e r e s p e c t i v e l y

p o s s e s s e d o f a c l e a r e d , u n en cu m b ered e s t a t e o f __________

.

.

.

t o t h e amount

” and t h e n r e j e c t e d t h e r e c o m m e n d a tio n o f

t h e C o m m ittee o f D e t a i l t h a t t h e L e g i s l a t u r e e s t a b l i s h its

fo r

members u n i f o r m q u a l i f i c a t i o n s w i t h r e g a r d t o p r o p e r t y . The d e f e a t o f t h e p r o p e r t y q u a l i f i c a t i o n f o r members

o f th e

S e n a t e was a v e r y d e m o c r a t i c a c t on t h e p a r t o f t h e

C o n v e n t i o n , w h ic h had n e v e r b e e n v e r y f r i e n d l y t o a d e m o c r a c y . 5.

R e p r e s e n t a t i o n s h o u l d be b a s e d o n number o f f r e e

in h a b ­

ita n ts The members i n f a v o r o f r e p r e s e n t a t i o n b a s e d on p o p u la tio n or at a l l m in ed

t h e number o f f r e e

i n h a b i t a n t s , made n o h ead w ay

d u r i n g t h e C o n v e n t i o n , as t h e s m a l l s t a t e s w e r e d e t e r ­ t o g e t e q u a l r e p r e s e n t a t io n in th e S e n a te i f n o t in

b o t h h o u s e s , and t h e S o u t h s t u b b o r n l y u p h e l d i t s have a p r o p o r tio n ,

i f not a l l ,

of its

sla v e s

r ig h t to

cou n ted f o r

purposes o f r e p r e s e n t a t io n . The p r o p o s i t i o n was s o u n p o p u l a r t h a t a m o t i o n by H a m i l t o n , May J O,

th a t r e p r e se n ta tio n

on t h e num ber o f f r e e

in t h e S e n a te be b a sed

i n h a b i t a n t s , w as p o s t p o n e d .

78 The r a t h e r p e r s i s t e n t a t t e m p t s

in th e c o n v e n tio n to

b a s e r e p r e s e n t a t i o n i n o n e o r b o t h h o u s e s on t h e p r i n c i p l e of free

i n h a b i t a n t s f e l l b e f o r e tw o c o m p r o m is e s :

"G reat Com prom ise" and t h e

The

" T h r e e - f i f t h s C o m p ro m ise . 0

The

d e f e a t o f t h i s p r o p o s i t i o n made t h e f r a m i n g o f t h e C o n s t i ­ tu tio n p o s s ib le . 6.

C itiz e n sh ip q u a lific a tio n :

fou r, te n , th ir te e n ,

fo u r­

teen years When i t

s e e m e d p r o b a b l e t h a t t h e S e n a t e w o u ld b e

g i v e n t h e p o w er t o make t r e a t i e s a ffa ir s,

som e u n e a s i n e s s was f e l t

and t o manage f o r e i g n about r e q u ir in g a fo u r -

y e a r c i t i z e n s h i p q u a l i f i c a t i o n f o r S e n a t o r s w h ic h was a d v o c a t e d i n t h e r e p o r t o f t h e C o m m ittee o f D e t a i l . A ugust 9 , M o r r is ,

On

fe a r in g th a t f o r e ig n e r s , w ith t h e ir n a tu r ­

a l a t t a c h m e n t s f o r t h e i r own c o u n t r i e s and p r e j u d i c e s a g a i n s t o t h e r g o v e r n m e n t s , m ig h t g e t

i n t o our S e n a te , prop osed a

r eq u ire m en t o f a f o u r t e e n - y e a r term o f c i t i z e n s h i p .

When

t h i s met w i t h d i s f a v o r ^ h e r e d u c e d ( t h e te r m t o t h i r t e e n y e a r s , b u t t h i s m o t i o n a l s o was d e f e a t e d .

The q u e s t i o n was

f i n a l l y s e t t l e d when C h a r l e s P i n c k n e y ’ s m o t i o n f o r t e n y e a r s was d e f e a t e d and t h e n i n e - y e a r t e r m , now i n t h e C o n s t i t u t i o n , w as a g r e e d t o . M ost p e r s o n s t o d a y w o u ld a g r e e t h a t t h e C o n v e n t i o n a cted w is e ly in d e fe a tin g th e fo u r te e n -y e a r c it iz e n s h ip

79 q u a lific a tio n .

I t ta k e s an a l i e n

n a tu r a liz e d c it i z e n ,

f i v e y e a r s t o becom e a

a f t e r w h ic h t i m e h e m u st w a i t n i n e

y e a r s b e f o r e h e c a n becom e a S e n a t o r .

The p r e s e n t r e q u i r e ­

m en ts se em a d e q u a t e . 7*

" R e sid e n t” o f s t a t e a t tim e o f e l e c t i o n

changed to

" in h a b ita n t" The C o m m ittee o f D e t a i l had p r o v i d e d t h a t a member o f t h e S e n a t e be a " r e s i d e n t " o f t h e s t a t e fr o m w h ic h h e was chosen.

T h i s was o b j e c t e d t o on t h e g r o u n d t h a t t h e t e r m

" r e s i d e n t " m ig h t e x c l u d e p e r s o n s a b s e n t o c c a s i o n a l l y f o r a c o n s i d e r a b l e t i m e on p u b l i c o r p r i v a t e b u s i n e s s .

On A u g u s t

9 t h i s q u i b b l e o v e r t h e s u i t a b i l i t y o f t h e w ord was s e t t l e d when " r e s i d e n t " was s t r u c k o u t and i t s word " i n h a b i t a n t , " w h ic h s i g n i f i e s

p la c e f i l l e d

sim p ly l e g a l d o m ic ile .

C a s t i n g a s i d e t h e w ord " r e s i d e n t " i s e x a m p le o f a p r o p o s i t i o n d e f e a t e d

by t h e

a v e r y m in o r

in t h e C o n v e n tio n , y e t ,

a c c o r d in g t o t h e p o i n t o f v ie w o f any la w y e r ,

i t was a v e r y

w ise m easure. 8.

D isq u a lific a tio n :

may n o t h o l d a n y o t h e r o f f i c e u n d e r

t h e C o n s t i t u t i o n f o r o n e y e a r a f t e r e x p i r a t i o n o f te r m U nder t h e A r t i c l e s

o f C o n f e d e r a t i o n members o f Con­

g r e s s h ad b e e n a b l e t o c r e a t e o f f i c e s w h ic h t h e y t h e m s e l v e s m ig h t f i l l .

B e c a u s e som e o f t h e s e had su ccum b ed t o t h i s

t e m p t a t i o n , t h e d e l e g a t e s a t t a c h e d m u st i m p o r t a n c e t o t h e

c l a u s e i n t h e V i r g i n i a P l a n w h ic h p r o p o s e d t h a t members o f t h e S e n a t e be i n e l i g i b l e

t o any o f f i c e e s t a b l i s h e d under th e

a u t h o r i t y o f t h e U n ite d S t a t e s

" for a sp a c e o f

t h e e x p i r a t i o n o f t h e i r term in t h e S e n a t e . t e r m o f o n e y e a r was i n s e r t e d

in t h i s

b la n k .

n a fter

On June 12 a T h is d i s q u a l i -

b y i n g c l a u s e was s t r u c k o u t o n t h e m o t i o n o f Gorham on J u n e 22 b u t a p p e a r e d i n t a c t

in th e

J u l y 2 6 and t h e r e s o l u t i o n s A ugust 6 .

" T w e n t y - t h r e e R e s o l u t i o n s 11 o f

o f t h e C o m m ittee o f D e t a i l on

The C o m m ittee o f S t y l e , h o w e v e r , s u b s t i t u t e d t h e

c l a u s e now fo u n d i n t h e C o n s t i t u t i o n , t h a t n o S e n a t o r s h a l l , d u r i n g t h e t e r m f o r w h i c h h e was e l e c t e d , b e a p p o i n t e d t o any c i v i l o f f i c e under t h e a u t h o r i t y o f t h e U n ite d S t a t e s w h ic h s h a l l h a v e b e e n c r e a t e d , o r t h e e m o lu m en ts w h e r e o f s h a l l have b een in c r e a se d ,d u r in g su ch tim e . T h is p r o v i s i o n i s

an ad eq u ate p r o t e c t i o n .

I t w o u ld

h a v e b e e n f o o l i s h t o p r o h i b i t S e n a t o r s f r o m h o l d i n g any oth er fe d e r a l o f f ic e h ad e x p i r e d .

f o r a y e a r a f t e r t h e i r te r m o f o f f i c e

U n der s u c h a p r o v i s i o n , no S e n a t o r c o u l d t r a n s

f e r a t o n c e t o t h e C a b i n e t , Suprem e C o u r t , o r p r e s i d e n t i a l o ffic e . 9*

S e n a t o r s t o be c h o s e n by t h e l o w e r h o u s e o u t o f a p r o p e r number o f p e r s o n s n o m in a t e d by t h e i n d i v i d u a l s t a t e s

1 0 . S e n a t o r s s h o u l d be a p p o i n t e d b y t h e P r e s i d e n t o u t o f a p r o p e r number o f p e r s o n s t o b e n o m in a t e d b y t h e s t a t e

81 le g isla tu r e s 1 1 . S e n a t o r s t o be c h o s e n by t h e p e o p l e d i v i d e d 1 2 . S e n a to r s t o be c h o s e n i n d i r e c t l y by e l e c t o r s

in to d i s t r i c t s c h o s e n by

th e p e o p le B e f o r e t h e C o n v e n t io n r e a c h e d an a g r e e m e n t t o l e a v e th e e l e c t i o n o f th e S en ators to th e s t a t e l e g i s l a t u r e s , s e v e r a l , o t h e r m eth o d s w e r e p r o p o s e d and f o r v a r i o u s r e a s o n s w ere d i s c a r d e d . The f i r s t p r o p o s i t i o n s p e c i f i e d t h a t S e n a t o r s b e chosen by th e

" f ir s t b ran ch ” o f th e N a tio n a l L e g is la t u r e out

o f a num ber o f p e r s o n s n o m i n a t e d b y t h e i n d i v i d u a l l e g i s l a ­ tu res.

W h ile o t h e r modes w e r e b e i n g d i s c u s s e d , t h i s

w h ic h had f i r s t

one,

a p p e a r e d i n t h e V i r g i n i a P l a n , r e m a in e d on

r e c o r d u n t i l t h e mode o f e l e c t i o n by s t a t e

l e g i s l a t u r e s was

a g r e e d t o on J u n e 25* One o f t h e e a r l i e r s o l u t i o n s was o f f e r e d by C h a r l e s P i n c k n e y , w h o se m o t i o n t h a t t h e e l e c t i o n o f S e n a t o r s b e made b y t h e H ouse o f R e p r e s e n t a t i v e s w i t h o u t t h e a i d o f t h e s t a t e l e g i s l a t u r e met w i t h a n im m e d ia t e d e f e a t o n May ^ 1 .

A bout a

w e ek l a t e r R ea d * s p r o p o s a l t h a t t h e S e n a t o r s b e a p p o i n t e d by t h e P r e s i d e n t o u t o f a p r o p e r number o f p e r s o n s t o b e n o m in ­ a te d by t h e s t a t e

l e g i s l a t u r e s , won no. a p p r o v a l b e c a u s e . i t

a p p e a r e d t o b e a s t r i d e to w a r d a m o n a rch y w h ic h few o f t h e C o n v e n t io n d e s i r e d .

82 H a m ilto n ’s p r o p o s a l t h a t th e S e n a te he ch o sen i n d i r e c t ­ ly by e le c t o r s was e n t i r e l y

c h o s e n by t h e p e o p l e f a r e d e v e n w o r s e , a s i t

ig n o r e d by t h e C o n v e n tio n .

A l l t h e s e d e f e a t e d m e th o d s o f c h o o s i n g S e n a t o r s w e r e in d ir e c t,

r e f l e c t i n g t h e C o n v e n t io n !s d i s t r u s t o f t h e p e o p l e .

E ven m ore o b j e c t i o n a b l e , h o w e v e r , was W i l s o n ’s m o t i o n t h a t S e n a t o r s b e e l e c t e d by t h e p e o p l e d i v i d e d because i t

in to d i s t r i c t s ,

i g n o r e d t h e s t a t e s and a l s o g a v e t h e c h o i c e d i r ­

e c t l y to th e p e o p le . l ^ . L if e term f o r S e n a to r s When t h e q u e s t i o n o f how l o n g S e n a t o r s s h o u l d r e m a in i n o f f i c e was b e i n g d i s c u s s e d on J u n e 25 and J u n e 2 6 , t e r m s v a r y i n g fro m t h r e e t o n i n e y e a r s ,

as w e l l a s l i f e

ten u re,

were s u g g e s t e d . H a m i l t o n , w h o se a im was t o s t r e n g t h e n t h e c e n t r a l govern m en t, p r e fe r r e d a S e n a te e l e c t e d b e h a v io r .

t o s e r v e d u r in g good

In g e n e r a l th e d e l e g a t e s w ere opposed t o h i s

ex­

t r e m e p h i l o s o p h y o f g o v e r n m e n t , b u t b o t h M o r r is and Read fe lt

th a t l i f e

t e n u r e was n e c e s s a r y i n o r d e r t o e s t a b l i s h

t h e in d e p e n d e n c e o f t h e u p p e r h o u s e .

R e a d ’s m o t i o n t h a t

S e n a t o r s b e g i v e n t e n u r e d u r i n g good b e h a v i o r f a r e d no b e t t e r t h a n H a m i l t o n ’ s p r o v i s i o n a s i t was s u p e r s e d e d b y o t h e r m o t i o n s , and c h a n g e d t h e n e x t d a y by Read h i m s e l f . proposal for l i f e

T h is

t e r m f o r S e n a t o r s was o n e o f t h e m o st

83 im p o r ta n t o f t h e p r o p o s i t i o n s d e f e a t e d i n t h e C o n v e n tio n . Its

a d o p t i o n w o u ld h a v e i n t r o d u c e d a v e r y u n d e m o c r a t i c

fea tu re

i n t o o u r g o v e r n m e n t , o n e w h ic h m ig h t h a v e h a d marked

r e su lts

in th e fu tu r e .

14 . V a r i o u s t e r m s s u g g e s t e d :

th ree,

fou r, f iv e ,

seven,

n in e y ea rs For a t im e , t h e s h o r t e r term s s u g g e s t e d f o r S e n a t o r s d i d n o t se em m ore p o p u l a r t h a n t h a t o f l i f e

ten u re a lth o u g h

a s e v e n - y e a r term p rop osed b y S p a ig h t d id p r e v a i l f o r s e v e r a l days.

T h i s was s t r i c k e n o u t , h o w e v e r , s o t h a t o t h e r te r m s

m ig h t be c o n s i d e r e d .

P i e r c e came f o r w a r d w i t h t h e p r o p o s a l

t h a t a t h r e e - y e a r te r m w o u ld b e c o n v e n i e n t s i n c e

i t w o u ld

g i v e t h e o p p o r t u n i t y t o g e t r i d o f u n d e s i r a b l e S e n a t o r s and to r e - e l e c t d e s i r a b l e ones o f t e n .

T h en P in c k n e y a n d , l a t e r ,

Gorham moved t h a t t h e d u r a t i o n o f t h e i r t e r m b e s e v e n y e a r s . None o f t h e s e w e r e v o t e d u p o n , b u t a m o t i o n f o r f i v e y e a r s , w h ic h had b e e n t h e l e n g t h o f t e r m f o r S e n a t o r s s t a t e s u n d e r t h e C o n f e d e r a c y , was d e f e a t e d .

i n many

F i n a l l y w h en

t h e n i n e - y e a r t e r m p r o p o s e d b y Read was a l s o d e f e a t e d , t h e C o n v e n t io n a d o p t e d W i l l i a m s o n and Gorham fs p r o p o s a l o f t h e s i x - y e a r t e r m w h ic h fo u n d i t s

p la c e

in th e C o n s t it u t io n .

The f a c t t h a t t h e C o n v e n t i o n c o n s i d e r e d s e n a t o r i a l te r m s a s v a r i e d as t h r e e , life , its

illu s tr a te s

fo u r,

fiv e ,

s e v e n , n i n e y e a r s and

t h e c a r e w i t h w h ic h t h e body w o r k e d i n

a t t e m p t t o s e c u r e a p r a c t i c a l and w o r k a b le p r o v i s i o n .

84 1 5 - S e n a t o r s t o r e c e i v e no s a l a r y W h ile t h e d e l e g a t e s w e r e d e c i d i n g w h e t h e r t h e S e n a t o r s w e r e t o he p r o v i d e d w i t h a s a l a r y t h a t w as

“l i b e r a l , 11 “f i x e d , ”

o r “a d e q u a t e , ” G e n e r a l C. C. P i n c k n e y p r o p o s e d t h a t t h e s e n a t o r i a l b ran ch o f th e g overn m en t,

“w h ic h was m eant t o

r e p r e s e n t t h e w e a l t h o f t h e c o u n t r y , ” r e c e i v e no s a l a r y .

H is

m o t i o n , s e c o n d e d b y F r a n k l i n , was d e f e a t e d . T h i s p r o p o s i t i o n was a f a v o r i t e w o u ld h a v e p r o v i d e d no s a l a r i e s

i d e a o f F r a n k l i n , who

fo r N a tio n a l o f f i c e r s .

1 6 . S e n a t o r s t o b e p a i d by s t a t e s Under t h e A r t i c l e s o f C o n f e d e r a t i o n e a c h s t a t e had p a id i t s

own c o n g r e s s m e n .

T h i s had c r e a t e d a s i t u a t i o n w h ic h

was u n f a v o r a b l e t o t h e c e n t r a l g o v e r n m e n t .

The m a j o r i t y o f

members o f t h e C o n v e n t i o n , w i s h i n g t o a v o i d g i v i n g t h e s t a t e s u n du e i n f l u e n c e o v e r t h e S e n a t o r s , d e f e a t e d a m o t io n t h a t S e n a to r s be p a id by t h e i r r e s p e c t i v e s t a t e s

and p r o v i d e d i n

th e C o n s titu tio n th a t th e so u rce o f t h e i r f i n a n c i a l support be t h e N a t i o n a l T r e a s u r y . The h i s t o r y o f o u r c o u n t r y h a s p r o v e d t h a t t h e Con­ v e n tio n a c te d w is e ly in d e f e a t in g t h is p r o p o s a l. 1 7 . A quorum t o be t w o - t h i r d s o f a l l members B e f o r e t h e C o n s t i t u t i o n a l c l a u s e t h a t a quorum i n t h e S e n a t e s h o u l d c o n s i s t o f a s i m p l e m a j o r i t y o f a l l t h e members w as a d o p t e d , t h e

in te r e stin g

s u g g e s t i o n was made t h a t t h e

85 quorum c o n s i s t o f t w o - t h i r d s o f a l l t h e m em b ers. o f t h i s p r o p o s a l w as m o st f o r t u n a t e .

The d e f e a t

N ot o n l y h a s t h e p r e ­

s e n t C o n s t i t u t i o n a l p r o v i s i o n f o r a quorum w o r k e d o u t w e l l , b u t t h e r e q u i r e m e n t o f a t w o - t h i r d s m a j o r i t y w o u ld h a v e b e e n d a n g e r o u s , s i n c e i t w o u ld h a v e p l a c e d t o o much p o w er i n t h e hands o f a sm a ll m in o r it y . 1 8 . S en a te t o ch oose i t s The o f f i c e

own p r e s i d e n t

o f V i c e - P r e s i d e n t was p r o v i d e d f o r i n a

c o m m i t t e e r e p o r t o n S e p te m b e r 4 .

P r e v io u s t o t h i s d a t e ,

t h e r e had b e e n n o h i n t o f t h e d e s i r a b i l i t y o f s u c h a n o f f i ­ cer.

The C o n v e n t io n h ad a g r e e d w i t h o u t comment t h a t t h e

S e n a t o r s w e r e t o e l e c t t h e i r own p r e s i d i n g o f f i c e r s .

T h is

was c h a n g e d , h o w e v e r , when t h e C o n v e n t i o n , a s l a t e a s S e p t e m ­ b e r , d e c id e d t o c r e a te th e o f f i c e make h im e x - o f f i c i o

o f V i c e - P r e s i d e n t and t o

" P re sid e n t o f th e S e n a t e . “

By t h i s

tr u ly

p e c u l i a r and u n i q u e a r r a n g e m e n t , t h e S e n a t e was d e p r i v e d o f a p o w er h i g h l y c h e r i s h e d b y t h e Lower H o u s e , n a m e l y , t h a t o f c h o o sin g i t s

own p r e s i d i n g o f f i c e r .

1 9 . U pper H ouse t o s e t t l e d i s p u t e s b e t w e e n s t a t e s The s e t t l i n g d iffic u lt

o f d i s p u t e s b e t w e e n s t a t e s had p r o v e d t o o

fo r th e C on gress-u n d er th e C o n fed era cy .

Now, i n

t h e new g o v e r n m e n t , s u c h i n t e r n a l t r o u b l e s a s d i s c r i m i n a t o r y l a w s among t h e s t a t e s ,

and t h e i r r e t a l i a t o r y r e g u l a t i o n s

w h ic h had t e n d e d t o d e s t r o y t h e u n i o n o f s t a t e s , w e r e t o b e

86 t u r n e d o v e r t o a N a t i o n a l J u d i c i a r y , w h ic h was a b o u t t o be e sta b lish e d .

A f t e r t h i s d e c i s i o n had b e e n a d o p t e d , an e f f o r t

was made t o add t h i s p o w er o f s e t t l i n g d i s p u t e s sta tes

to th o se a lr e a d y v e ste d

in th e S en a te.

b etw een T h i s was d e ­

f e a t e d w h en t h e c l a u s e p r e s e n t e d b y a s p e c i a l c o m m i t t e e on A u g u st 6 was s t r u c k o u t . M ost A m e r ic a n s w o u ld a g r e e t o d a y t h a t t h e C o n v e n t i o n a c t e d w i s e l y w hen i t d e f e a t e d t h i s p r o p o s a l . . J u d ic ia r y is

The F e d e r a l

c e r t a i n l y b e t t e r e q u ip p e d th a n t h e S e n a te t o

s e t t l e d isp u te s

b etw een s t a t e s .

2 0 . To h a v e s o l e p o w e r t o d e c l a r e war One o f t h e m ost i m p o r t a n t p o w e r s b e s t o w e d u p on Con­ gress

in th e C o n s t it u t io n i s t h a t o f d e c la r in g w ar.

D u rin g

t h e C o n s t i t u t i o n a l C o n v e n t i o n , e f f o r t s w e r e made t o g i v e t h i s p o w er t o t h e S e n a t e a l o n e .

The f i r s t p r o p o s a l came from

H a m ilt o n o n June 1 8 when h e r e a d h i s p l a n f o r a new g o v e r n ­ ment .

H is s u g g e s t i o n was n e v e r r e f e r r e d t o a c o m m i t t e e , b u t

la te r ,

C h a rles P in c k n e y p ro p o sed t h a t t h e c l a u s e g i v i n g

Con­

g r e s s t h e p o w er t o make war be s t r i c k e n fro m t h e r e p o r t o f t h e C o m m ittee o f D e t a i l s o t h a t a p r o v i s i o n g i v i n g t h e S e n a t e t h e s o l e p ow er t o make war m ig h t b e i n s e r t e d .

T h i s was d e ­

f e a t e d w hen t h e d e l e g a t e s r e f u s e d t o s t r i k e o u t t h e c l a u s e . In ou r h i s t o r y th e S e n a te has b een lo o k ed upon as th e r e p r e s e n t a t i v e o f t h e s t a t e s , w h i l e t h e H ouse r e p r e s e n t s t h e

87 p e o p le .

For t h i s

reason i t

i s v e r y s u i t a b l e t h a t t h e p ow er

t o d e c l a r e w a r was n o t g i v e n t o t h e S e n a t e a l o n e . 2 1 . To make t r e a t i e s A n o t h e r e x c e e d i n g l y i m p o r t a n t p o w e r , w h ic h t h e C o n v en ­ t i o n h a d t o p l a c e m ost w i s e l y , was t h a t o f m a k in g t r e a t i e s . On A u g u s t 6 i n a r e p o r t o f t h e C o m m ittee o f D e t a i l , p o w er w as v e s t e d

in th e S e n a te .

By A u g u st

th a t th e S e n a te !s p o s s e s s io n o f t h is r e g a r d e d w i t h a la r m by m any.

th is

i t w as e v i d e n t

t r e a t y - m a k i n g p o w er was

The C o n v e n t i o n , u n a b l e t o a g r e e ,

s e n t t h e q u e s t i o n b a c k t o t h e c o m m i t t e e , w h ic h d i v i d e d t h e p o w er b e t w e e n t h e P r e s i d e n t and t h e S e n a t e . The e x i s t i n g p o w e r t o r a t i f y o r d e f e a t t r e a t i e s r e c k o n e d among i t s

g r e a te s t p r e r o g a tiv e s.

is

To h a v e g i v e n t h e

s o l e p o w e r o f m akin g t r e a t i e s t o t h e S e n a t e w o u ld h a v e m i n i ­ m iz e d t h e o f f i c e o f P r e s i d e n t a t t h e same t i m e i t

enhanced

t h e p o w er o f t h e S e n a t e . 2 2 . To a p p o i n t a m b a s s a d o r s To a p p o i n t Suprem e C ou rt j u d g e s The C o n s t i t u t i o n a s s o c i a t e s t h e S e n a t e and t h e P r e s i ­ d e n t i n t h e m a t t e r o f t h e a p p o in t m e n t o f a m b a s s a d o r s and j u d g e s o f t h e Suprem e C o u r t .

D u r in g t h e C o n v e n t i o n , h o w e v e r ,

th e d e l e g a t e s w ere w i l l i n g t o approve a c la u s e p r e s e n te d by t h e C o m m ittee o f D e t a i l w h ic h c o n f e r r e d t h e a p p o i n t i v e p o w er u p on t h e S e n a t e a l o n e .

T h is c l a u s e ,

o p p o s e d v i g o r o u s l y by

87 M o r r i s , W i l l s o n , and a fe w o t h e r s who f e l t

t h a t th e S en ate

was t o o num erous a b o d y f o r t h i s p u r p o s e , w as d e f e a t e d when t h e C o n v e n t io n a c c e p t e d a s p e c i a l c o m m i t t e e f s p r o p o s a l a u t h o r ­ iz in g th e P r e s id e n t, w ith th e co n sen t o f th e S e n a te , to a p p o i n t a m b a s s a d o r s and Suprem e C o u rt j u d g e s . The a p p o i n t i n g p o w er i s ,

str ic tly

s p e a k in g , an e x e c u ­

t i v e p o w e r —-one w h ic h t h e C o n v e n t io n w i s e l y g a v e t o t h e P r e sid e n t.

The S e n a t e fs p o w er t o c o n f i r m o r r e j e c t a p p o i n t ­

m en ts c e r t a i n l y g i v e s t o t h a t body a l l t h e c h e c k t h a t i s needed. 23> • To make t r e a t i e s

o f p e a c e by a t w o - t h i r d s v o t e w i t h o u t

th e concurrence o f th e P r e sid e n t T r e a t y - m a k i n g p o w e r was n o t i n c l u d e d i n R a n d o l p h f s o r i g i n a l r e s o l u t i o n s o r d e b a te d in t h e C o n v e n tio n u n t i l t h e p o w er t o make p e a c e was g i v e n t o t h e S e n a t e i n t h e r e p o r t o f t h e C o m m ittee o f D e t a i l ,

on A u g u s t 6 .

When l a t e r a n o t h e r

s p e c i a l c o m m i t t e e , t o w h ic h t h i s m u c h - d e b a t e d q u e s t i o n had b e e n g i v e n , p r o p o s e d t h a t t h e P r e s i d e n t w i t h t h e a d v i c e and c o n s e n t o f t h e S e n a t e be v e s t e d w i t h t h i s M a d is o n , f e e l i n g

th a t peace t r e a tie s

tr e a ty -m a k in g pow er,

s h o u l d be made w i t h l e s s

d i f f i c u l t y t h a n o t h e r s , moved t o add t h e w o r d s , tr e a tie s .”

”e x c e p t p e a c e

T h is b e i n g a g r e e d t o , h e p r o p o s e d t h a t p e a c e

t r e a t i e s b e made by a t w o - t h i r d s v o t e o f t h e S e n a t e w i t h o u t th e concurrence o f th e P r e sid e n t.

T h i s was d e f e a t e d , a s t h e

88 b e l i e f t h a t t h e S e n a t e s h o u l d n o t be t r u s t e d w i t h t h i s p o w e r prevai le d . T h i s was o n e o f t h e m o st p e c u l i a r p r o p o s i t i o n s among th o se d efea ted

i n th e C o n v e n tio n .

T h e r e se em s t o b e n o g o o d

r e a s o n f o r l e t t i n g t h e S e n a t e make t r e a t i e s o f p e a c e w h en a l l o th e r t r e a t i e s w ere to be n e g o t ia t e d by th e c h i e f e x e c u t i v e . 2 k . Pow er d e n i e d — No p o w e r t o r e j e c t a p p o i n t m e n t s o f t h e h e a d s o f t h e d e p a r t m e n t s o f F i n a n c e , W ar, and F o r e i g n A f f a i r s The C o n s t i t u t i o n g i v e s t h e S e n a t e p o w e r t o c o n f i r m o r r e j e c t t h e a p p o i n t m e n t s o f p e r s o n s whom t h e P r e s i d e n t a p p o i n t s as h ea d s o f th e v a r io u s d e p a r tm en ts o f g o v ern m en t.

H a m ilto n ,

imbued w i t h t h e d e s i r e f o r a m ore a r i s t o c r a t i c g o v e r n m e n t , p ro p o sed i n h i s p la n o f governm ent t h a t th e S e n a te be g iv e n no p o w er t o r e j e c t t h e P r e s i d e n t ’ s a p p o i n t s o f t h e h e a d s o f t h e d e p a r t m e n t s o f F i n a n c e , War, and F o r e i g n A f f a i r s .

T h is,

a s w e l l a s t h e o t h e r p r o v i s i o n s o f h i s p l a n , was n e v e r c o n ­ sid e r e d s e r io u s ly . T h r o u g h o u t A m e r ic a n h i s t o r y t h e S e n a t e h a s c o n f i r m e d t h e P r e s i d e n t ’s a p p o in tm en ts t o h i s e x c e p tio n .

C ustom h a s ,

g e s t i o n as a r u l e .

in f a c t , c a r r ie d o u t H a m ilto n ’ s s u g ­

S till,

b y d r o p p i n g h i s J > r o p o s a l.

t h e C o n v e n t i o n show ed g o o d jud gm en t A c a b i n e t a p p o i n t m e n t made by

P r e s i d e n t C o o l i d g e was r e j e c t e d u n u su a l.

c a b in e t , a lm o st w ith o u t

by t h e S e n a t e .

T h is w as m o st

CHAPTER V I THE LOWER HOUSE 1.

The name o f t h e l o w e r h o u s e s h a l l 'be ( 1 ) F i r s t B r a n ch ( 2 ) A s s e m b ly (3 ) H ouse o f R e p r e s e n t a t i v e s One s u b j e c t w h ic h was n o t d e b a t e d b y t h e d e l e g a t e s

in

t h e C o n v e n t i o n w hen a s s e m b l e d i n t h e C o m m ittee o f t h e W hole was t h a t o f a s u i t a b l e t i t l e

fo r th e l e g i s l a t i v e

b o d y now

known a s t h e H ouse o f R e p r e s e n t a t i v e s . The New J e r s e y P l a n , w h ic h s o u g h t o n l y t h e r e v i s i o n o f t h e A r t i c l e s o f C o n fe d e r a tio n , p r o v id e d f o r o n ly one h o u se i n th e N a tio n a l L e g is la t u r e .

T h i s , o f c o u r s e , r e t a i n e d t h e name

C on gress. The t e r m fff i r s t b r a n c h ” a s u s e d i n t h e V i r g i n i a P l a n was n o t s u g g e s t e d a s a p o s s i b l e name f o r t h e l o w e r h o u s e .

It

was s i m p l y a g e n e r a l way o f r e f e r r i n g t o t h a t b od y u n t i l t h e C o n v e n t io n s h o u l d a g r e e u p on a n o f f i c i a l t i t l e . t h e t e r m ”f i r s t b oth th e

T h erefo re,

b r a n c h , ” a s u s e d i n t h i s p l a n and l a t e r

“N i n e t e e n R e s o l u t i o n s ” and t h e

in

“T w e n t y - T h r e e R e s o l u ­

t i o n s , ” i s n o t c o n s id e r e d as b e in g in c lu d e d

in th e l i s t

of

rejected p r o p o sitio n s. On t h e o t h e r h a n d , H a m i l t o n f s t e r m ,

f,The A s s e m b l y , ”

was i n t e n d e d a s an o f f i c i a l d e s i g n a t i o n and was d e f i n i t e l y

90 r e j e c t e d b y t h e a d o p t i o n o f t h e n am e,

’’H ouse o f R e p r e s e n t a ­

t i v e s , ” w h ic h becam e t h e o f f i c i a l t i t l e i t w as u s e d f o r t h e f i r s t 2.

a f t e r A u g u s t 6 when

t i m e b y t h e C o m m ittee o f D e t a i l .

P r in c ip le o f r e p r e se n ta tio n --a c c o r d in g to c o n tr ib u tio n s E a r ly i n t h e C o n v e n tio n ,

H ou se o f R e p r e s e n t a t i v e s , some e q u i t a b l e r a t i o :

i t w as d e c i d e d t h a t

in th e

s u f f r a g e s h o u l d be a c c o r d i n g t o

m ea n in g , t h e r e b y , n o t on t h e b a s i s o f

an e q u a l i t y o f t h e s t a t e s .

B efore a s a t i s f a c t o r y c o n c lu s io n

w as r e a c h e d , t h e p r i n c i p l e o f r e p r e s e n t a t i o n b ecam e a s o u r c e o f many h e a t e d d e b a t e s . On t h e o n e h a n d , M a d is o n , B u t l e r , R u t l e d g e , and o t h e r r e p r e se n ta tiv e s

fro m t h e l a r g e r s t a t e s u p h e l d a r a t i o o f

r e p r e s e n t a t io n based on c o n t r i b u t i o n s , one o f th e a l t e r n a ­ t i v e s proposed in th e V ir g in ia P la n .

On t h e o t h e r h a n d , t h e

d e l e g a t e s fro m t h e s m a l l e r s t a t e s w h e r e g r e a t c o m m e r c ia l w e a l t h was l a c k i n g , q u i t e n a t u r a l l y o p p o s e d t h i s in s is te d

th a t,

s i n c e e a c h s t a t e was an e n t i t y ,

have an e q u a l v o t e .

b a s i s and

e a c h sh o u ld

R u t le d g e , h o w ev e r, h o p in g in s p i t e o f

th e o p p o s it io n t h a t a t l e a s t one branch o f th e l e g i s l a t u r e m ig h t r e p r e s e n t t h e w e a l t h o f t h e s t a t e s ,

moved t h a t s u f f r a g e

in t h e lo w e r h o u se be a c c o r d in g to t h e q u o ta s o f c o n t r i b u t i o n . As t h i s m o t i o n was n o t v o t e d u p o n , i t was r e s t a t e d b y B u t l e r t h e n e x t d a y , b u t was p o s t p o n e d . B e f o r e a f i n a l e f f o r t was. made on J u l y 5 t o g e t t h e C o n v en tio n t o f a v o r su ch a p l a n o f r e p r e s e n t a t i o n ,

F r a n k lin ,

91 in an e f f o r t t o d im in is h th e o b j e c t i o n s o f th e p o o r e r s t a t e s , su g g ested a f a n t a s t ic v a r ia t io n o f th e g e n e ra l p r o p o s itio n fo r b a sin g r e p r e s e n t a t io n tio n s.

in th e lo w e r h o u se upon c o n t r i b u ­

A c co r d in g to t h i s p l a n , d e a l t w it h i n g r e a t e r d e t a i l

i n a p r e v i o u s c h a p te r ,'* ' t h e c o n t r i b u t i o n s fro m a l l s t a t e s w e r e t o b e e q u a l t o t h e amount t h e w e a k e r s t a t e s w e r e w i l l i n g t o f u r n i s h f o r t h e g e n e r a l p u r p o s e s o f t h e U n io n . In p r o p o sin g th a t r e p r e s e n t a t io n

in th e lo w er h ou se

o f C o n g r e s s be b a s e d u p o n c o n t r i b u t i o n s made b y t h e s t a t e s to t h e su p p o rt o f th e N a tio n a l g o v ern m en t, an i n d i r e c t a t t e m p t w as made t o r e p r e s e n t p r o p e r t y o r w e a l t h . g e s t i o n had s o many p r a c t i c a l o b j e c t i o n s t o

it

th at

The s u g ­ i t was

w ise ly r e je c te d . 5.

A c co r d in g

t o t h e number o f f r e e

4.

B la ck s t o

be r e p r e s e n t e d e q u a l t o w h i t e s

When t h e w o r d s

in h a b ita n ts

" fr e e p o p u la t io n " w ere s u b s t i t u t e d

for

" w e a lth " a s a

b a s is o f r e p r e s e n t a t io n , th e sm a ll s t a t e s , b e ­

in g p la c e d a t

a s g r e a t a d i s a d v a n t a g e a s b e f o r e , l i n e d up

o p p o s i t i o n t o t h i s m eth od t o o .

in

S u ch s t r o n g d i s a p p r o v a l was

e x p r e s s e d a g a i n s t S h er m a n ^ m o tio n , t h a t r e p r e s e n t a t i o n i n th e

" f i r s t branch" be a c c o r d in g to f r e e

q u e s t i o n was n o t p u t .

1 Supra, pp. 5 2 -5 3 -

in h a b ita n ts , th a t th e

A m ore s e r i o u s c o n f l i c t , h o w e v e r , b e g a n s o o n a f t e r J u l y 5> when a t e n t a t i v e c o m p r o m ise w as e x t e n d e d t o p a c i f y t h e l a r g e and s m a l l s t a t e s .

T h i s g a v e t o th e . l a r g e s t a t e s

r e p r e s e n t a t io n based on f r e e p o p u la t io n , ga v e a s p e c i a l f i n a n c i a l p o w er t o t h e H ou se o f R e p r e s e n t a t i v e s w h ic h b e n ­ e fite d

th e sm a ll s t a t e s ,

and a s s u r e d an e q u a l i t y o f s t a t e

r e p r e se n ta tio n in th e S en a te. la c k in g a la r g e , th is

On J u l y 1 1 and 12 t h e S o u t h ,

f r e e , w h ite p o p u la t io n , sto o d f ir m ly a g a in s t

o r a n y o t h e r m ethod w h ic h w o u ld d e p r i v e th e m o f t h e

r e p r e se n ta tio n o f th e s la v e p o p u la tio n .

T h ey p l a c e d b e f o r e

t h e C o n v e n t i o n a demand t h a t t h e b l a c k s be c o u n t e d e q u a l t o th e w h ite s

in th e a p p o rtio n m e n t.

Two m o t i o n s t o t h a t e f f e c t

made b y B u t l e r and C h a r l e s P i n c k n e y , r e s p e c t i v e l y , w e r e d e ­ fea ted . As i t was e v i d e n t t h a t t h e p r o g r e s s o f t h e C o n v e n t io n w o u ld be h i n d e r e d o r c h e c k e d u n l e s s w ere a c c e p t e d ,

some c o n c i l i a t o r y m e a s u r e s

i t was a g r e e d t o c o u n t t h r e e - f i f t h s o f t h e

s l a v e p o p u l a t i o n among t h e q u o t a s , a s w e l l a s t h e f r e e h a b ita n ts,

as a b a s is o f r e p r e s e n t a t io n in th e H ouse.

T h e s e tw o p r o p o s a l s t o b a s e r e p r e s e n t a t i o n h o u s e u p on ( l )

th e fr e e

w h i t e s and b l a c k s a l i k e ,

by c o m p r o m is e .

in t h e lo w e r

i n h a b i t a n t s o f t h e c o u n t r y o r ( 2 ) u p on c o u n tin g a l l o f th e l a t t e r c l a s s ,

ware i m p o s s ib le o f a d o p t io n . se ttle d

in ­

The q u e s t i o n s

in d is p u t e w ere

B a s i n g r e p r e s e n t a t i o n i n t h e H ouse o f

93 R e p r e s e n t a t iv e s upon f r e e

*

i n h a b i t a n t s , h ad t o w a i t u p o n t h e

fr e e in g o f th e s la v e s . 4.

R a t i o o f r e p r e s e n t a t i o n t o b e o n e member f o r e v e r y 4 0 ,0 0 0 o f p o p u la tio n When t h e s p e c i a l c o m m i t t e e , r e p o r t i n g a c o m p ro m ise on

J u ly 5 > p ro p o sed an e q u i t a b le r a t i o

o f one r e p r e s e n t a t i v e f o r

e v e r y 4 0 ,0 0 0 o f p o p u la tio n as a b a s is f o r s u f f r a g e in th e lo w e r h o u s e , t h e d e l e g a t e s a l l o w e d i t tory.

T h is r a t i o

to stan d as s a t i s f a c ­

o f p o p u l a t i o n f o r t h e H ouse o f R e p r e s e n t a ­

t i v e s , u s e d i n s u b s e q u e n t r e p o r t s o f t h e C o m m ittee o f D e t a i l and t h e C o m m ittee on S t y l e , w as o n e o f t h e m in o r d e t a i l s c h a n g e d on t h e l a s t d a y o f t h e c o n v e n t i o n when fl4 0 , 0 0 0 ,, was d r o p p e d and

M 3 0 , 000n in se r te d .

The c h a n g e was made a t t h e r e q u e s t o f W a s h i n g t o n , who v o ic e d th e g e n e r a l im p r essio n p r e v a ilin g ,

t h a t i t w o u ld be

w i s e t o h a v e a l a r g e r m em b ersh ip i n t h e H ouse d u r i n g t h e e a r l y y e a r s o f t h e new g o v e r n m e n t . 5.

C itiz e n sh ip q u a lif ic a t io n :

th ree,

fou r,

f iv e years

proposed The p e r i b d o f c i t i z e n s h i p

r e q u isite

fo r th e r e p r e s e n t­

a t i v e s o f t h e H ouse was f i r s t d e b a t e d on A u g u s t 8 , w hen t h e C o m m ittee o f D e t a i l p r o p o s e d a t e r m o f t h r e e y e a r s . t h a t s o s h o r t a p e r i o d m ig h t o p e n t h e o f f i c e fo r e ig n e r s,

F e a r in g

to o r e a d ily to

t h e m a j o r i t y o f t h e C o n v e n t io n s u p p o r t e d a m o t i o n

94 o f Mason and M o r r is s u b s t i t u t i n g s e v e n y e a r s f o r t h e t h r e e year r eq u ire m en t. S u b s e q u e n t m o t i o n s , s h o w in g l a c k o f c o n f i d e n c e

in

t h e i r d e c i s i o n s , w e r e made* b y W i l s o n f o r a f o u r - y e a r t e r m , by C a r r o l f o r a f i v e - y e a r t e r m , and b y W i l l i a m s o n f o r a n i n e y e a r term o f c i t i z e n s h i p . fea ted .

A l l o f t h e s e , h o w e v e r , w ere d e ­

The C o n s t i t u t i o n a l r e q u i r e m e n t s o f s e v e n y e a r s h a s

been g e n e r a lly a c c e p te d as a s a t i s f a c a o r y s o l u t i o n o f t h i s p r o b le m . 6.

" R esid en t" changed t o

’’i n h a b i t a n t 11

The r e s i d e n c e q u a l i f i c a t i o n

f o r members o f t h e H ouse

o f R e p r e s e n t a t i v e s , p l a c e d on r e c o r d by t h e C o m m ittee o f D e t a i l on A u g u s t 6 , was a l t e r e d fo r S en a to rs.

The word

i n t h e same manner a s t h a t

’’r e s i d e n t ” a s i t

C o m m itta e r e p o r t w as r e p l a c e d

appeared in th e

by ’’i n h a b i t a n t " s o t h a t e l i ­

g i b l e p e r s o n s who m ig h t be a b s e n t fr o m t h e i r r e s p e c t i v e sta tes

f o r lo n g p e r io d s o f tim e f o r b u s in e s s o r p e r s o n a l

r e a s o n s s h o u l d n o t b e e x c l u d e d fr o m m em b ersh ip i n t h e H o u s e . When t h e t e r m " i n h a b i t a n t , " r e f e r r i n g t o a p e r s o n ’s l e g a l d o m ic ile , w a s. chosen, as p r e fe r a b le f o r th e c la u s e , E l l s w o r t h and Mason moved t h a t

"one y e a r ’s p r e v i o u s

in h a b i­

t a n c y " b e r e q u i r e d , and B u t l e r and R u t l e d g e p r o p o s e d t h a t

2 Supra, p . 79.

95 th ree years d efea ted ,

in s te a d o f one he i n s e r t e d .

and t h e s i m p l e r e q u i r e m e n t t h a t a p e r s o n when

e l e c t e d he an in h a b it a n t o f th e s t a t e was p l a c e d 7.

B o th o f t h e s e w ere

i n w h ic h h e i s c h o s e n

in th e C o n stitu tio n .

D isq u a lific a tio n :

members o f t h e H ouse t o b e i n e l i g i b l e

to c e r t a in o f f i c e s

f o r one y e a r a f t e r t h e i r term s

A p p r eh en sio n l e s t

a n y member o f t h e H ouse o f R e p r e ­

s e n t a t i v e s ta k e ad van tage o f h is p o s i t i o n to l u c r a t i v e g overn m en tal o f f i c e s

le d to

in v e n t or p rocu re

t h e p r o p o s a l o f a mea­

su re d e sig n e d to p rev en t t h i s p o s s i b i l i t y o f p o l i t i c a l c o rru p ­ tio n .

A m o t i o n made o n June \J> p r o p o s e d t h a t members o f t h e

H ouse b e i n e l i g i b l e sta te,

t o any o f f i c e

e sta b lish e d

by a p a r t i c u l a r

o r un der th e a u t h o r i t y o f th e U n ite d S t a t e s

(ex cep t

th o s e p e c u lia r ly b e lo n g in g t o th e fu n c tio n o f th e f i r s t b r a n c h ) d u r i n g t h e i r t e r m o f s e r v i c e and u n d e r t h e N a t i o n a l governm ent f o r a sp a c e o f one y e a r a f t e r e x p i r a t i o n . p r i n c i p l e and f a c t s

i n v o l v e d w e r e t h e same a s t h o s e f o r

S e n a t o r s d e a l t w i t h i n C h a p te r

and i n c o n c l u s i o n t h e same

a g r e e m e n t was e f f e c t e d , b y w h ic h t h e i n e l i g i b i l i t y n a t i o n a l o f f i c e d u rin g h i s sio n o f

The

“o n e y e a r " a f t e r

t e r m w as r e t a i n e d ,

its

^ Supra. pp. 79- 8 0 .

to a

but th e e x t e n ­

e x p i r a t i o n was s t r i c k e n o u t .

8*

To b e c h o s e n b y t h e s t a t e As p o p u l a r e l e c t i o n s

le g isla tu r e s

fo r o ffic e r s

o f th e N a tio n a l

governm ent w ere u s u a l l y v ig o r o u s l y o p p o se d , t h e w i l l i n g n e s s o f t h e C o n v e n t i o n t o t u r n t h e e l e c t i o n o f members o f t h e l o w e r b r a n c h o v e r t o t h e p e o p l e o f t h e s t a t e s was s u r p r i s i n g . Among t h e m a j o r i t y s t r o n g l y f a v o r i n g t h i s w e r e M a d is o n , W i l s o n , M ason, D i c k i n s o n , and P i e r c e ; w h i l e t h e o p p o s i n g m i n o r i t y i n c l u d e d , among o t h e r s , P i n c k n e y , R u t l e d g e , and S h erm an.

The l a t t e r

sou ght to g iv e th e s t a t e

a more d i r e c t p a r t i c i p a t i o n

le g isla tu r e s

in t h e N a t io n a l governm ent by

p la c in g th e e l e c t i o n o f th e R e p r e s e n ta tiv e s b u t P in c k n e y * s m o tio n , t h a t t h e f i r s t

in t h e ir han d s,

branch be e l e c t e d

by

t h e m , met w i t h a n o v e r w h e lm in g d e f e a t . S in c e t h e C o n v e n tio n g a v e t h e c h o i c e o f t h e U n ite d S ta te s S en ato rs over to th e s t a t e

le g isla tu r e s,

i t w o u ld n o t

have b een w ise t o a llo w th e l a t t e r t o ch o ose th e R e p r esen ta ­ tiv e s

a lso .

I f t h e H ouse w e r e t o r e p r e s e n t t h e p e o p l e , and

n ot th e s t a t e s ,

t h e o n l y l o g i c a l s o l u t i o n w as t o a l l o w t h e

p e o p l e t o c h o o s e t h e members o f t h e H o u s e . 9* -To b e c h o s e n i n s u c h a m anner a s t h e l e g i s l a t u r e o f e a c h s t a t e may d i r e c t A n oth er e f f o r t to g i v e th e s t a t e a t l e a s t a p a r t i a l p a r tic ip a tio n

in th e e l e c t i o n

o f t h e members o f t h e H ouse

w as made b y G e n e r a l C. C. P i n c k n e y , who f e l t

t h a t th e fram ers

97 o f th e C o n s t i t u t i o n sh o u ld ta k e t h i s o p p o r tu n ity t o s t r e n g ­ t h e n a bond b e t w e e n t h e s t a t e s and t h e c e n t r a l g o v e r n m e n t . The d e l e g a t e s , h o w e v e r , d i d n o t c o n s i d e r t h i s n e e d f u l and d e fe a te d h is p r o p o sa l th a t th e f i r s t

b ran ch be e l e c t e d

s u c h a m anner a s t h e l e g i s l a t u r e o f e a c h s t a t e

in

sh o u ld d i r e c t .

The d e f e a t o f t h i s p r o p o s i t i o n was f o r t u n a t e .

If it

had b e e n a d o p t e d , members o f t h e H ouse m ig h t t o d a y b e c h o s e n by s e v e r a l d i f f e r e n t m e t h o d s .

Lack o f u n i f o r m i t y in t h e

m ethod o f c h o o s i n g r e p r e s e n t a t i v e s w o u ld n o d o u b t h a v e p r o ­ d u c e d many u n d e s i r a b l e r e s u l t s . 1 0 . Term o f o f f i c e :

o n e y e a r , tw o y e a r s , t h r e e y e a r s

The t e r m o f o f f i c e tw o y e a r s .

o f members o f t h e l o w e r h o u s e i s

The C o n v e n t io n r e j e c t e d p r o p o s i t i o n s f o r b o t h a

o n e - y e a r and a t h r e e - y e a r t e r m . I t was n a t u r a l t h a t t h e a n n u a l e l e c t i o n s p r o p o s e d b y Sherm an and E l l s w o r t h s h o u l d a t f i r s t

seem a c c e p t a b l e ,

t h i s had b e e n t h e r u l e u n d e r t h e A r t i c l e s B e f o r e t h i s m o t i o n was p u t t o v o t e ,

as

o f C o n fe d e r a tio n .

J e n n ife r ,

fe e lin g

th at

a g r e a t fre q u en cy o f e l e c t i o n s ren d ered p e o p le i n d i f f e r e n t t o th e m , moved t h a t a t h r e e - y e a r t e r m be s u b s t i t u t e d o n e -y ea r term .

M a d iso n u r g e d t h e v o t e r s t o a g r e e t o t h i s

l o n g e r t e r m a s a means o f p r o m o t i n g s t a b i l i t y m en tal b o d y .

fo r th e

To t h e d i s s a t i s f a c t i o n

annual e l e c t i o n ,

in t h a t g o v e r n ­

o f th o s e fa v o r in g th e

t h e t h r e e - y e a r te r m was a t o n e t i m e s e t t l e d

98 upon.

L a te r , how ever,

i t was s t r i c k e n o u t and r e p l a c e d by a

t w o - y e a r t e r m , w h ic h w as a h a p p y and a r e a s o n a b l e s o l u t i o n . 1 1 . To b e s u b j e c t t o r e c a l l The r e s o l u t i o n s

s u b m i t t e d b y R a n d o lp h o n May 29 had

c o n ta in e d a p r o v is io n

t h a t members o f t h e H o u s e , a s w e l l a s

t h e S e n a t e , s h o u l d be

in c a p a b le o f r e - e l e c t i o n

" for a sp a ce o f

11 a f t e r t h e e x p i r a t i o n o f t h e i r te r m s o f s e r v i c e , t h a t t h e y w e re s u b j e c t t o r e c a l l .

and

On t h e m o t i o n o f P i n c k n e y ,

b o t h o f t h e s e c l a u s e s w e r e by u n a n im o u s c o n s e n t s t r i c k e n o u t . T h i s s u g g e s t i o n t h a t t h e members o f t h e H ouse s h o u l d be i n c a p a b l e o f r e - e l e c t i o n w as v e r y f o o l i s h .

R e -e le c tio n

g i v e s e x p e r i e n c e , and e x p e r i e n c e d e v e l o p s s t a t e s m a n s h i p . The p r o p o s a l t h a t members o f t h e H ou se b e s u b j e c t t o r e c a ll is

a r a d ic a lly d if f e r e n t m a tter.

I t e x is t e d under th e

A r t i c l e s and m ig h t h a v e w o rk ed w e l l u n d e r t h e p r e s e n t Con­ stitu tio n .

I t sh o u ld

term o f o f f i c e

lo n g e r

have b een c o u p le d , h ow ever, w ith a t h a n tw o y e a r s .

1 2 . C o m p e n s a t io n t o b e :

(a ) l ib e r a l ,

(b ) f i x e d ,

( c ) a d eq u ate

R a n d o lp h * s o r i g i n a l r e s o l u t i o n s had p r o v i d e d t h a t mem­ bers o f th e f i r s t r e c e iv e

branch o f th e N a tio n a l L e g is la t u r e sh o u ld

“l i b e r a l s t i p e n d s " f o r t h e d e v o t i o n o f t h e i r t i m e t o

th e p u b lic s e r v i c e .

As t h e word " l i b e r a l " w as o b j e c t e d t o b y

m any, i t was s t r i c k e n o u t and was r e p l a c e d b y t h e word " f i x e d ."

99 A f t e r a s h o r t d i s c u s s i o n on t h e s u b j e c t h a d c o n v i n c e d t h e C o n v e n t io n t h a t t h e f i x i n g o f s a l a r i e s w e l l a s t h e p r e s e n t , w o u ld b e u n f a i r , su b s titu te d .

fo r th e fu tu r e ,

as

t h e word ,fa d e q u a t e 11 was

T h is w as o m i t t e d , h o w e v e r , o n A u g u st 1 4 , b y t h e

C o m m ittee o f D e t a i l , w h ic h i n c l u d e d among i t s p r o v i s i o n s m e r e l y t h a t members o f t h e H ouse o f R e p r e s e n t a t i v e s w o u ld r e c e iv e a c o n d e n sa tio n f o r t h e i r s e r v i c e s .

A l t h o u g h t h i s was

q u i t e c o n t r a r y t o t h e d e c i s i o n s o f t h e C o m m ittee o f t h e W h o le , th e p r o p o s itio n ,

so s e t t l e d ,

I n r e j e c t i n g t h e te r m s

beca m e p a r t o f t h e C o n s t i t u t i o n . “l i b e r a l 11 and “f i x e d ” a s d e ­

s c r i p t i v e o f t h e s a l a r i e s o f R e p r e s e n t a t i v e s , t h e C o n v e n t io n a cted w is e ly .

The t e r m “a d e q u a t e " se e m s t o be l e s s

tio n a b le , but is

open to th e c r i t i c i s m

o b jec­

o f b e in g i n d e f i n i t e .

1 3 . To b e p a i d b y t h e s t a t e s When t h e p r o v i s i o n t h a t t h e R e p r e s e n t a t i v e s o f t h e H o u se be p a i d o u t o f t h e R a t i o n a l T r e a s u r y w as b e f o r e t h e C o n v e n t io n o n Jun e 2 2 , S h er m a n , E l l s w o r t h , W i l l i a m s o n , and o t h e r s s u p p o r t e d a m o t i o n t h a t t h e p a y m en t b e made b y t h e s t a t e s o u t o f t h e i r own t r e a s u r i e s . Gorham, d e f e n d i n g t h e o r i g i n a l c l a u s e , t h e s t a t e s m ig h t p a r e down s a l a r i e s

su ggested th a t

and t h u s k e e p c a p a b l e

men o u t , w h i l e R a n d o lp h a d d ed t h e o p i n i o n t h a t members o f t h e H o u s e , made d e p e n d e n t t h u s u p o n t h e s t a t e , m i g h t - n o t h a v e th e n a tio n 's

in te r e s t at h e a r t.

M is g iv in g s such a s t h e s e

100 w ere f e l t

by M a d is o n , K i n g , W i l s o n , . H a m i l t o n , B u t l e r ,

and s o

many o t h e r d e l e g a t e s t h a t t h e m o t i o n was d e f e a t e d . I f C o n g r e ssm e n w e r e t o h e c o n s i d e r e d a s N a t i o n a l o ffic e r s,

l o g i c r e q u ir e s t h a t th e y h e p a id out o f th e

N a tio n a l T reasu ry. 1 4 . Pow er o f t h e H ou se t o r a t i f y t r e a t i e s - - d e n l e d The t r e a t y - m a k i n g p o w e r , w h ic h was o n e o f t h e m o st i m p o r t a n t o f t h o s e p l a c e d b e f o r e t h e C o n s t i t u t i o n a l C o n v en ­ t i o n , was d e b a t e d many t i m e s w i t h g r e a t e a r n e s t n e s s . p o w er w as f i r s t v e s t e d le s t

it

T h is

i n th e S en a te a l o n e , but a p p re h e n sio n

be u s e d u n w i s e l y p r o n p t e d t h e d e l e g a t e s t o s e e k more

se c u r ity .

F in a lly ,

a l i m i t e d t r e a t y - m a k i n g p o w er was t r a n s ­

f e r r e d t o t h e P r e s i d e n t , who w as t o a c t th e S e n a to r s.

in co n cu rren ce w ith

Toward t h e en d o f t h e C o n v e n t i o n W i l s o n ,

in g s t r e s s upon th e f a c t t h a t c o n t r a c t s , w h ic h a r e b y n a t u r e l e g i s l a t i v e , b oth b o d ie s o f th e l e g i s l a t u r e ,

la y ­

su ch as t r e a t i e s

sh o u ld have th e s a n c t io n o f moved t h a t t h e c o n c u r r e n c e

o f t h e H o u se o f R e p r e s e n t a t i v e s , a s w e l l a s t h e S e n a t e , be r e q u ir e d .

H is m o t i o n w as d e f e a t e d , a s i t w as d e c i d e d t h a t

t h e more n u m ero u s b r a n c h o f t h e L e g i s l a t u r e w o u ld make i t d iffic u lt

t o a s s u r e t h e p r o m p t n e s s and s e c r e c y o f t e n n e c e s ­

sa r y i n su ch t r a n s a c t i o n s . W i l s o n ’ s p r o p o s a l t h a t t h e H ouse s h a r e i n t h e t r e a t y m ak in g p o w er i s

a m ost i n t e r e s t i n g o n e .

The a r g u m e n ts

101 a g a in st i t ,

h ow ever, w ere o v e r p o w er in g .

The C o n v e n t i o n d i d

w e ll to d e fe a t th e p r o p o s itio n . 15- A ll h i l l s

f o r a p p r o p r i a t i n g money t o o r i g i n a t e

l o w e r h o u s e , n o t t o be a l t e r e d

in th e

by th e upper hou se

The s u b j e c t o f r a i s i n g and a p p r o p r i a t i n g money p r e ­ s e n t e d a n o t h e r i m p o r t a n t i s s u e w h ic h w as d i s c u s s e d a t g r e a t le n g t h in t h e C o n v e n tio n .

A s e ttle m e n t o f t h i s

d e l a y e d b e c a u s e i t w as j o i n e d a t i t s b e t w e e n t h e l a r g e and s m a l l s t a t e s

i s s u e was

o r ig in to th e c o n f l ic t

over s t a t e r e p r e se n ta tio n

i n t h e tw o b r a n c h e s o f t h e L e g i s l a t u r e . T h is f i r s t

money c l a u s e a p p e a r e d on J u l y 5 i n a r e p o r t

o f a s p e c i a l c o m m i t t e e w h ic h p r e s e n t e d t o t h e C o n v e n t io n a t h r e e - c l a u s e c o m p r o m ise d e s i g n e d t o fa c tio n s.

The f i r s t

c o n c ilia te

th e o p p o sin g

o f th e s e proposed t h a t r e p r e s e n ta tio n

be b a sed on p o p u l a t i o n i n t h e H ouse; t h e t h i r d g a v e e q u a l i t y o f sta te v o te

in th e S e n a te .

The s e c o n d , t h e money c l a u s e ,

g a v e t h e s o l e pow er o f o r i g i n a t i n g b i l l s

f o r r a i s i n g and

a p p r o p r i a t i n g m oney t o t h e H ouse o f R e p r e s e n t a t i v e s , and a l s o p r o v i d e d t h a t t h e S e n a t e s h o u l d n o t a l t e r o r amend t h e m . The s m a l l s t a t e s , h a v i n g g a i n e d c o n t r o l o f t h e S e n a t e t h r o u g h e q u a lity o f r e p r e se n ta tio n , b e in g .

co n ced ed t h i s p o i n t f o r t h e tim e

The w isd o m o f g i v i n g t h e H ouse s o much power* was

s o o n q u e s t i o n e d , and o n A u g u st 8 t h e c l a u s e was s t r i c k e n o u t . W h ile t h e s o l e p o w e r o f o r i g i n a t i n g b i l l s

for r a is in g

102 r e v e n u e was l a t e r r e t u r n e d t o

th e H ouse, t h a t o f a p p r o p r ia t ­

i n g money became h e n c e f o r t h a j o i n t p o w e r f o r t h e S e n a t e and th e H ouse. W h e th e r t h e C o n v e n t i o n a c t e d w i s e l y o r n o t i n g r a n t ­ i n g t o t h e H ou se t h e s o l e p o w er o f o r i g i n a t i n g a p p r o p r i a t i o n b ills

and t h e n r e j e c t i n g t h e p r o p o s i t i o n , may be o p e n t o

d eb a te.

I t w o u ld s e e m , h o w e v e r , t h a t ,

lo g ic a lly ,

one h o u se

s h o u l d h a v e t h e s o l e p o w er o f o r i g i n a t i n g b o t h r e v e n u e and a p p r o p r ia tio n b i l l s , t o o r i g i n a t e th e m .

o r t h a t b o t h h o u s e s s h o u l d be a l l o w e d

CHAPTER V I I THE NATIONAL JUDICIARY 1.

Names a p p l i e d t o t h e su p rem e c o u r t and t o t h e s y s t e m o f N a tio n a l J u d ic ia r y U nder t h e A r t i c l e s o f C o n f e d e r a t i o n , t h e l e g i s l a t i v e ,

e x e c u tiv e ,

and j u d i c i a l d e p a r t m e n t s had b e e n c o m b in e d i n o n e •

T h is l a c k o f a s e p a r a t e

j u d i c i a r y had c o n t r i b u t e d much to w a r d

t h e breakdown o f t h e o ld C o n fe d e r a c y .

R a n d o lp h , r e c o g n i z i n g

t h i s , p r o p o s e d t o rem ed y t h e d e f e c t b y e s t a b l i s h i n g a s t r o n g N a t i o n a l J u d i c i a r y , c o n s i s t i n g o f o n e o r m ore su p rem e t r i ­ b u n a l s and i n f e r i o r t r i b u n a l s . t i o n , , a p p ro v in g t h i s

The f r a m e r s o f t h e C o n s t i t u ­

ch an ge, began c o n s tr u c tin g t h i s

th ir d

g r e a t d e p a r t m e n t f o r t h e new g o v e r n m e n t . As t h e d e p a r t m e n t d e v e l o p e d d u r i n g d e b a t e s and d i s ­ c u ss io n s,

th e t i t l e s

u sed to d e s ig n a te

it

v a r ie d .

F or t h e

s y s t e m o f n a t i o n a l c o u r t s , w h ic h i n c l u d e d t h e i n f e r i o r c o u r t s and o n e o r more su p rem e c o u r t s ,

t h e name “N a t i o n a l

J u d i c i a r y , 11 u s e d f i r s t b y R a n d o lp h i n t h e V i r g i n i a P l a n , was a c c e p t e d b y t h e C o m m ittee o f t h e W hole and b y t h e s p e c i a l c o m m i t t e e s w h ic h p r e p a r e d t h e la te r ,

th e

f,N i n e t e e n R e s o l u t i o n s *1 a n d ,

" T w en ty -th ree R e s o l u t i o n s . ”

by u s i n g t h e t e r m

P a terso n v a r ie d t h is

“F e d e r a l J u d i c i a r y ” i n t h e New J e r s e y P l a n ,

b u t t h i s was r e j e c t e d w i t h t h e r e s t o f t h e P l a n .

104 Our h i g h e s t c o u r t , now known a s t h e Suprem e C o u r t , r ec e iv ed

its

B efore t h i s ,

name i n t h e r e p o r t o f t h e C o m m ittee o f D e t a i l . it

had b e e n r e f e r r e d t o a s

n a l ” i n t h e New J e r s e y P l a n , and t h e

”0 n e Suprem e T r i b u ­

“Suprem e J u d i c i a l

A u t h o r i t y ” b y H a m ilt o n i n h i s p l a n o f g o v e r n m e n t . 2.

P r o p o s it io n to e s t a b l i s h no i n f e r i o r c o u r ts The C o n s t i t u t i o n p r o v i d e s f o r a Suprem e C o u r t / b u t

g i v e s t o C o n g r e s s t h e p o w e r t o d e t e r m i n e how many i n f e r i o r c o u r t s w o u ld b e e s t a b l i s h e d .

D u r in g t h e C o n v e n t i o n , t h e

a r b itr a r y e sta b lish m e n t o f a sy stem o f in f e r io r fe d e r a l c o u r t s , p r o p o s e d i n R a n d o l p h ’ s o r i g i n a l r e s o l u t i o n s , was o p p o s e d by R u t l e d g e # B u t l e r , S h er m a n , and o t h e r s who f e l t t h a t t h e s e w e r e an u n n e c e s s a r y e n c r o a c h m e n t u p on t h e s t a t e c o u r t s , w h ic h o u g h t t o b e l e f t fir st

i n a l l c a s e s to d e c id e in th e

in s ta n c e th e r ig h t o f a p p ea l t o th e S u p e rio r N a tio n a l

T r ib u n a l.

The m a j o r i t y , h o w e v e r , s h a r e d M a d iso n and W i l s o n ’ s

o p in io n t h a t t h e s e f e d e r a l c o u r t s w ere n eed ed to c o u n t e r a c t l o c a l and s t a t e p r e j u d i c e s , w h i c h had b e e n a s o u r c e o f much d i s s e n s i o n under th e A r t i c l e s

o f C o n fe d e r a tio n .

,T h ese

b ro u g h t a b o u t t h e d e f e a t o f a m o tio n by R u tle d g e t h a t t h e c la u se e s t a b lis h in g

i n f e r i o r t r ib u n a ls or c o u r ts under th e

N a tio n a l a u th o r ity be expunged.

On t h e same d a y t h e N a t i o n a l

L e g i s l a t u r e was em powered t o e s t a b l i s h t h e i n f e r i o r t r i b u n a l s . t A m e r ic a n h i s t o r y h a s p r o v e d t h a t i n f e r i o r c o u r t s h a v e

105 s e r v e d many i m p o r t a n t c a u s e s .

The C o n s t i t u t i o n a l C o n v e n t io n

a c te d w i s e l y i n d e f e a t i n g th e a ttem p t to p r e v e n t t h e i r e s ­ ta b lish m e n t. 3.

P rop erty q u a l i f i c a t i o n s

and c i t i z e n s h i p

fo r

ju d ges.

D is q u a lif ic a t io n o f d eb to rs The C o n s t i t u t i o n c o n t a i n s n o q u a l i f i c a t i o n s j u d g e s o f t h e Suprem e C o u r t , b u t s e v e r a l e f f o r t s

fo r th e

to

in c lu d e

th em i n t h e C o n s t i t u t i o n w e r e l a i d b e f o r e t h e C o n v e n t i o n . On J u l y 26 c l a u s e s p r o p o s i n g t h a t la n d e d p o s s e s s i o n s and c itiz e n sh ip

b e r e q u i r e d and t h a t p e r s o n s h a v i n g u n s e t t l e d

a cco u n ts be d i s q u a l i f i e d w ere p a sse d w it h l i t t l e

d eb a te,

a l t h o u g h many d e l e g a t e s h ad an a v e r s i o n t o a n y r e c i t a l o f q u a l i f i c a t i o n s b e in g p la c e d

in th e C o n s t it u t io n .

T hose i n ­

terested

i n g i v i n g w e a l t h some w e i g h t i n t h e new g o v e r n m e n t

r e a liz e d

on more m a tu r e r e f l e c t i o n ' t h a t la n d e d p o s s e s s i o n s

w ere no s ig n o f r e a l w e a lt h . " c itiz e n sh ip

The w o r d s

" la n d e d p r o p e r t y , ”

i n U n ite d S t a t e s , " and, a l s o ,

th e c la u se d i s ­

q u a l if y i n g d e b to r s w ere s t r i c k e n ou t l a t e r . W h i l e o n e may n o t c r i t i c i z e q u a lific a tio n s

th e ab sen ce o f p ro p erty

fo r fe d e r a l ju d g es, or th e d e fe a t o f th e prop­

o s i t i o n t o b a r d e b t o r s fr o m s e r v i c e

in th e f e d e r a l c o u r ts ,

t h e r e w i l l p r o b a b l y be many t o h o l d t h e v i e w t h a t t o r e q u i r e f e d e r a l j u d g e s t o be c i t i z e n s have been a w ise m easu re.

o f t h e U n i t e d S t a t e s w o u ld

P r o b a b l y fe w A m e r ic a n s a r e aw are

106 o f th e f a c t th a t th e C o n s titu tio n does not r eq u ire fe d e r a l ju d g es t o he c i t i z e n s

o f t h e U n ite d S t a t e s .

^f.

F e d e r a l j u d g e s t o be c h o s e n by N a t i o n a l L e g i s l a t u r e

$•

To b e c h o s e n b y t h e S e n a t e

6.

To b e c h o s e n b y t h e S e n a t e w i t h t h e c o n c u r r e n c e o f t h e E x e c u tiv e

7*

-

To b e c h o s e n b y t h e E x e c u t i v e , w i t h t h e c o n c u r r e n c e o f o n e -th ir d o f S en ate R a n d o l p h ’ s R e s o l u t i o n s had g i v e n t o t h e N a t i o n a l

L e g i s l a t u r e t h e a p p o in tm en t o f ju d g e s o f t h e N a t i o n a l J u d i ­ c ia r y .

t

T h is mode o f a p p o i n t m e n t was o p p o s e d o n t h e g r o u n d

t h a t t h e m ore num erous g o v e r n m e n t a l b o d y made p o s s i b l e t r i g u e and p a r t i a l i t y .

The m a j o r i t y , t h e r e f o r e ,

a m o t i o n b y M a d iso n and W i l s o n t h a t t h e s t r i c k e n o u t and t h e b l a n k f i l l e d

in ­

su p p orted

" l e g i s l a t u r e " be

at a la te r d a te .

W ith in

tw o w e e k s , t h e o n l y m o t i o n f a v o r i n g t h e a p p o i n t m e n t by t h e N a t i o n a l L e g i s l a t u r e was w it h d r a w n i n f a v o r . o f a m o t i o n t h a t th e

j u d g e s b e a p p o i n t e d by t h e S e n a t e . For a lo n g tim e t h e C o n v e n tio n u n a n im o u sly a g r e e d t o

a llo w th e S e n a te t o a p p o in t p r o p o sa ls,

(l)

j u d g e s i n s p i t e o f nu m erou s

to tra n sfer t h is

th e P r e sid e n t a lo n e , or P r e s i d e n t and S e n a t e ,

a p p o i n t i v e p o w er e i t h e r t o

( 2 ) t o g i v e l i m i t e d p o w er t o t h e

(2 ) to th e S e n a te w ith th e co n cu rren ce

107 o f t h e P r e s i d e n t , w h o se v e t o s h o u l d b e o v e r r i d d e n b y a t w o th ir d s v o te o f th e S en a te , or

(4 ) to th e P r e sid e n t w ith th e

concurrence o f o n e -th ir d o f th e S e n a te . th is

The S e n a t e r e t a i n e d

e x c l u s i v e p o w er u n t i l S e p te m b e r 7 , when t h e p r o p o s a l o f

a s p e c i a l co m m ittee to v e s t t h i s pow er o f a p p o in tm en t o f j u d g e s i n t h e P r e s i d e n t and t o r e q u i r e t h e a d v i c e and c o n s e n t o f t h e S e n a t e , was a d o p t e d . In r e j e c t i n g th e s e s e v e r a l p r o p o s a ls to v e s t th e a p p o in t m e n t o f f e d e r a l j u d g e s

in C on gress or in th e S en a te

a l o n e , t h e C o n v e n t i o n se e m s t o h a v e b e e n w e l l a d v i s e d .

Fur­

t h e r m o r e , c o n c u r r e n c e b y o n e - t h i r d o f t h e S e n a t e w o u ld n o t b e s e n a to r ia l concurrence a t a l l , th ir d s o f th a t body.

bu t r e a l l y r e p u d ia t io n by tw o -

The m ethod o f c h o o s i n g f e d e r a l j u d g e s

w h ic h was f i n a l l y a d o p t e d h a s w orked w e l l . 8.

No i n c r e a s e

in s a l a r y d u r in g term o f o f f i c e

As a m eans o f s a f e g u a r d i n g t h e i n d e p e n d e n c y o f t h e j u d i c i a l d ep artm en t, th e d e le g a t e s o f th e C o n s t it u t io n a l C o n v e n t i o n d e n i e d C o n g r e s s t h e p o w er t o r e d u c e t h e s a l a r i e s o f j u d g e s o f t h e Suprem e C o u r t .

R a n d o lp h i n h i s

r e s o l u t i o n s had p r o p o s e d t h a t t h e r i g h t t o

o r ig in a l

in c r e a se s a la r ie s

be d e n i e d a s w e l l , b u t t h i s was s t r i c k e n o u t o n J u l y 1 8 , and su b seq u e n t m o tio n s t o r e i n s t a t e

i t w ere r e j e c t e d .

A m o tio n

o f M a d i s o n f s made on A u g u s t 27 t o t h e e f f e c t t h a t i n c r e a s e s , in th e s a l a r i e s

o f ju d ges d o .n o t ta k e e f f e c t u n t i l a f t e r th e

e x p ir a t io n o f th r e e y ea rs d id not p a s s . It

i s g e n e r a lly c o n sid e r e d r e a so n a b le t o a llo w

in c r e a se s

in ju d g es' s a l a r ie s becau se o f t h e ir l i f e - t e n u r e . 9*

To b e r em ov ed b y t h e e x e c u t i v e u p o n a p p l i c a t i o n o f t h e S e n a t e and t h e H ouse A c co r d in g t o t h e C o n s t i t u t i o n th e

for l i f e

and c a n b e r em o ved fr o m o f f i c e

B efore t h i s th at

ju d ges a re e le c t e d o n l y b y im p e a c h m e n t.

c o n c l u s i o n w as r e a c h e d , t h e p r o p o s a l w as made

j u d g e s be rem ov ed b y t h e e x e c u t i v e o n a p p l i c a t i o n o f t h e

S e n a t e and t h e H o u se o f R e p r e s e n t a t i v e s .

C o n c e r n in g t h i s ,

th e m a jo r ity o f d e le g a t e s shared W ils o n 's o p in io n th a t th e a c c e p t a n c e o f s u c h a p r o v i s i o n w o u ld make t h e members o f t h e Suprem e C o u rt s u b s e r v i e n t t o a n y f a c t i o n

i n t h e tw o b r a n c h e s

w h ic h h e l d t h e a s c e n d e n c y , and t h e m o t i o n w as r e j e c t e d .

The

r e m o v a l o f j u d g e s b y t h e e x e c u t i v e u p o n an a p p l i c a t i o n b y t h e N a t i o n a l L e g i s l a t u r e was a n o l d E n g l i s h c u s t o m . has s e v e r a l a d va n ta ges.

I n A m e r ic a n h i s t o r y ,

The m eth od

sev era l fed era l

j u d g e s h a v e b e e n r em o ved b y t h i s m eth o d o f im p e a c h m e n t. 1 0 . To t r y c a s e s h a v i n g t o d o w i t h t h e c o l l e c t i o n o f n a t i o n a l revenue B e f o r e t h e C o n v e n t i o n a g r e e d u p on t h e f i n a l w o r d in g o f A r tic le

III,

covers th e

S e c tio n I I ,

o f t h e C o n s t i t u t i o n , w h ic h p a s s a g e

j u r is d ic t io n o f th e fe d e r a l c o u r ts ,

sev era l sp e c ific

g ra n ts o f j u r is d ic t io n .

it

v o t e d down

One o f t h e s e s o u g h t

109 to g iv e

ju r is d ic t io n over c a ses a r is in g out o f th e c o lle c t io n

o f n a tio n a l revenue.

Recommended i n t h e V i r g i n i a P l a n , t h i s

p r o p o s i t i o n w as a d o p t e d b y t h e C o n v e n t i o n on J u n e 13>. appeared a s r e s o l u t i o n t h i r t e e n in t h e

It

lfN i n e t e e n R e s o l u t i o n s ”

r e p o r t e d b y t h e C o m m itte e o f t h e W hole o n t h e same d a t e .

It

w as d r o p p e d b y t h e C o m m ittee o f D e t a i l w h ic h r e p o r t e d on A u gust 6 p r e su m a b ly on t h e t h e o r y t h a t

j u r i s d i c t i o n over such

r e v e n u e c a s e s w as c o v e r e d i n t h e m ore g e n e r a l g r a n t s o f

ju ­

r i s d i c t i o n recom m ended b y t h e C o m m itt e e . 1 1 . To e x t e n d t o

im p ea ch m en t o f n a t i o n a l o f f i c e r s

A secon d s p e c i f i c g r a n t o f j u r i s d i c t i o n p rop osed in th e C o n v e n tio n , b u t l a t e r r e j e c t e d ,

sought to g iv e th e f e d ­

e r a l j u d i c i a r y a u t h o r i t y t o t r y c a s e s o f in p e a c h m e n t o f n a tio n a l o f f i c e r s .

T h is p r o p o s a l ,

g i n i a P l a n , was i n c l u d e d

fir st

foun d i n t h e V i r ­

in a l l c o m p ila tio n s o f r e s o lu t io n s

u n t i l J u l y 1 8 , w h en i t was s t r i c k e n o u t b y t h e m a j o r i t y v o t e . N e v e r th e le s s , co n tra ry to t h is

a c t i o n o f t h e C o n v e n tio n ,

it

w as r e t a i n e d among t h e r e s o l u t i o n s o f t h e C o m m ittee o f D e t a i l on A u g u s t 6 .

L ater th e a d v i s a b i li t y o f p e r m ittin g

ju d g es to

im p e a c h a P r e s i d e n t who had a p p o i n t e d them w as r e c o n s i d e r e d ; a n d , a s i s w e l l known, t h i s p o w e r w as g i v e n t o t h e S e n a t e . It

i s d i f f i c u l t t o p r o n o u n c e ju d gm en t u p o n t h e w isd o m

o f t h i s p a r t i c u l a r a c t i o n o f t h e C o n v e n tio n b e c a u s e i t d e b a t a b l e q u e s t i o n , w h e t h e r im p ea ch m en t t r i a l s

is

a

s h o u ld be o f

110 a ju d ic ia l or a p o l i t i c a l ch a ra cter.

I f th e form er, th e n

p e r h a p s t h e C o n v e n t io n s h o u l d h a v e g i v e n t h e p o w e r t o t h e co u rts;

i f t h e l a t t e r v iew i s

t h e c o r r e c t o n e , t h e n i t was

p r o p e r t o g i v e t h e t r i a l o f im p ea ch m en t c a s e s t o t h e 3 e n a t e . 1 2 . To e x t e n d t h e c a s e s a f f e c t i n g t h e n a t i o n a l p e a c e and harm ony A th ir d gra n t o f j u r is d ic t io n to th e f e d e r a l co u rts d efea ted cussed

i n t h e C o n v e n tio n , d i f f e r e d

fr o m t h e l a s t tw o d i s ­

in th e p r e v io u s s e c t i o n in th a t

hut very broad.

i t was n o t s p e c i f i c

T h i s p r o p o s a l , w h ic h s o u g h t t o g i v e t o t h e

fe d e r a l ju d ic ia r y a u th o r ity to tr y a l l c a se s a f f e c t in g n a t i o n a l p e a c e and h a r m o n y , w as f i r s t p r e s e n t e d i n s e c t i o n n i n e o f t h e V i r g i n i a R e s o l u t i o n s ; a n d , a g a i n , on J u n e 13* when R a n d o lp h and M a d iso n moved t h a t C o n v e n tio n . ta ils

it

be a p p r o v e d by t h e

T h i s w as d o n e w i t h t h e u n d e r s t a n d i n g t h a t d e ­

n e c e s s a r y t o d e f i n e or l i m i t t h e c l a u s e be s u p p l ie d

la te r .

T h i s move t o e x t e n d t h e

t r i b u n a l s was d e f e a t e d fa ile d

j u r is d ic t io n o f th e n a tio n a l

i n t h e C o m m ittee o f D e t a i l , w h ic h

to

in c lu d e

i t among t h e p r o p o s i t i o n s o f i t s n e x t

It

i s n o t t o b e i n f e r r e d fro m t h i s d e f e a t t h a t t h e

rep o rt.

f e d e r a l co u rts cannot tr y c a s e s a f f e c t in g th e n a tio n a l peace and h a r m o n y , b u t r a t h e r t h a t t h e s e o b j e c t i v e s a r e now s e c u r e d under o th e r g r a n ts o f

j u r i s d i c t i o n c o n ta in e d in th e C o n s ti­

t u t i o n — some o f them g e n e r a l ; o t h e r s ,

sp e c ific .

I ll 1 3 . D u ty o f t h e

ju d ic ia r y :

t o r e n d e r o p in io n s upon im p o rta n t

q u e s t i o n s o f la w and u p o n s o le m n o c c a s i o n s w hen r e q u e s t e d t o d o s o b y t h e E x e c u t i v e and e a c h h o u s e o f C o n g r e s s One p r o p o s i t i o n ,

and a v e r y i n t e r e s t i n g o n e , was s u b ­

m it te d b y P in c k n e y on A ugust 2 0 .

T h is p r o p o s a l , a s u g g e s t i o n

made f o r t h e s p e c i a l c o n s i d e r a t i o n o f t h e C o m m ittee o f D e t a i l , a d v o ca ted th a t ea ch branch o f th e l e g i s l a t u r e

and t h e E x e c u ­

t i v e h a v e a u t h o r i t y t o r e q u i r e t h e o p i n i o n s o f t h e Suprem e J u d i c i a l c o u r t u p o n i m p o r t a n t q u e s t i o n s o f la w and u p o n s o le m n o c c a s i o n s when r e q u e s t e d t o do s o by t h e E x e c u t i v e and e a c h house o f C ongressn o th in g about i t

The C o m m itte e r e c e i v e d t h i s ,

but d id

and t h e s u b j e c t was n o t m e n t i o n e d l a t e r .

P i n c k n e y * s p r o p o s a l w as t o t h e e f f e c t t h a t t h e c h i e f e x e c u t i v e and t h e C o n g r e s s b e a u t h o r i z e d t o s e e k a d v i s o r y o p in io n s from f e d e r a l j u d g e s . fa v o r a b ly o f such a p r a c t i c e ,

Many a u t h o r i t i e s ,

to d a y , th in k

a p r a c t i c e fo u n d i n t h e g o v e r n ­

m e n ts o f s e v e r a l n a t i o n s .

In t h e U n ite d S t a t e s , h o w e v e r , a

s p e c ia l o f f i c e r c a lle d th e

,fA t t o r n e y G e n e r a l ” p e r f o r m s t h i s

fu n c tio n ,

so f a r a s i t

i s p erfo rm ed a t a l l .

CHAPTER V I I I RELATIONS OP THE CENTRAL GOVERNMENT AND THE STATES P r o p o sitio n to r e q u ir e : 1.

A t w o - t h i r d s v o t e o f C o n g r e s s f o r a d m i s s i o n o f new s t a t e s

2 a . New s t a t e s t o h a v e l e s s b . New s t a t e s

r e p r e s e n ta tio n th an th e o ld s t a t e s

t o be a d m i t t e d on te r m s o f e q u a l i t y w i t h t h e

o ld s t a t e s When t h e C o n s t i t u t i o n a l C o n v e n t i o n o p e n e d , q u e s t i o n s c o n c e r n i n g t h e a d m i s s i o n o f new s t a t e s w e r e c o n s i d e r e d v e r y i m p o r t a n t , n o t o n l y b e c a u s e o f c e r t a i n d i f f i c u l t i e s w h ic h had b een e x p e r ie n c e d under th e A r t i c l e s o f C o n fe d e r a tio n , b u t, e s p e c i a l l y , b e c a u s e p o r t i o n s o f t h e w e s t e r n t e r r i t o r y w ere l o o k i n g fo r w a r d t o e a r l y s t a t e h o o d and t h u s t o a s h a r e i n t h e new g o v e r n m e n t .

A l t h o u g h R a n d o l p h rs p r o p o s a l t h a t

"new s t a t e s

b e a d m i t t e d i n t o t h e u n i o n w i t h t h e c o n s e n t o f a number o f v o ic e s

i n t h e L e g i s l a t u r e l e s s t h a n t h e w h o le " w as a c c e p t e d

w it h o u t d e b a te on June

J u l y 1 8 , and a l s o on J u l y 2 3 > i t

w as e v i d e n t fro m t h e t e n o r o f t h e d i s c u s s i o n s on t h e s u b j e c t th at d iffe r e n c e s

e x is te d

among t h e d e l e g a t e s .

Som e, f e a r i n g

t h a t t h e g r o w t h o f p o p u l a t i o n and w e a l t h o f t h e f u t u r e w e s t ­ e r n s t a t e s w o u ld d e p r i v e o l d e r s t a t e s o f t h e c o m m e r c i a l and p o l i t i c a l su p r e m a c y t h e y t h e n e n j o y e d , p r o p o s e d t o q u a l i f y R a n d o lp h * s r e s o l u t i o n b y a d d i n g a c l a u s e r e g u l a t i n g t h e p r o ­ p o r tio n a te r e p r e s e n ta tiv e s

o f t h e new s t a t e s

in th e f i r s t

113 b r a n c h s o t h a t t h e m a j o r i t y o f v o t e s w o u ld a l w a y s be i n t h e hands o f th e o r i g i n a l s t a t e s . t h a t t h e new s t a t e s

The m o t i o n , h o w e v e r , p r o p o s i n g

be g i v e n f e w e r members i n t h e H ou se o f

R e p r e s e n t a t i v e s was d e f e a t e d o n J u l y 1 4 . The C o m m ittee o f D e t a i l ,

r e p o r t i n g on A u g u s t 6 , had

d r a f t e d tw o c l a u s e s t h a t h ad n o t b e e n a g r e e d t o by t h e Con­ v e n tio n .

The f i r s t ,

c o n t r a r y t o t h e C o n v e n t i o n 1^ p r e v i o u s

v o t e , p r o v i d e d t h a t a t w o - t h i r d s v o t e o f C o n g r e s s be r e q u i r e d f o r t h e a d m i s s i o n o f new s t a t e s .

The s e c o n d , r e f l e c t i n g t h e

s e n t i m e n t s e x p r e s s e d b y M a d is o n , S h e r m a n , M ason, and o t h e r s o p p o s i n g u n f a v o r a b l e d i s c r i m i n a t i o n a g a i n s t new s t a t e s , p r o ­ p o s e d t h a t new s t a t e s

s h o u l d b e a d m i t t e d o n t h e same t e r m s

w ith th e o r i g i n a l s t a t e s .

When t h i s

a r t i c l e was b e i n g d i s ­

c u s s e d o n A u g u s t 2 9 >. M o r r is moved t h a t t h e l a s t p r o v i s i o n be str ic k e n o u t.

B e f o r e t h i s was v o t e d o n , h o w e v e r , M o r r is and

D i c k i n s o n p r o p o s e d a c o m p l e t e new d r a f t o f t h e c l a u s e ,

in

w h ic h t h e n e c e s s i t y o f t h e t w o - t h i r d s v o t e o f C o n g r e s s was n o t r e q u i r e d f o r t h e a d m i s s i o n o f new s t a t e s . was c a r r i e d and t h e p r o v i s i o n t h a t

”new s t a t e s b e a d m i t t e d

b y C o n g r e s s i n t o t h e u n i o n ” was l a t e r p l a c e d tio n .

T h is m o tio n

in th e C o n stitu ­

A l t h o u g h an e x p r e s s d e c l a r a t i o n o f t h e e q u a l i t y o r

i n e q u a l i t y o f t h e new s t a t e s w i t h t h e o l d w as t h u s e x c l u d e d from t h e C o n s t i t u t i o n ,

t h e f e d e r a l c o u r t s h ave a lw a y s v o t e d

i n f a v o r o f t h e e q u a l i t y o f t h e new s t a t e s w i t h t h e o l d .

114 The p r o p o s a l t o r e q u i r e a t w o - t h i r d s v o t e o f C o n g r e s s f o r t h e a d m i s s i o n o f a new s t a t e was u n d e m o c r a t i c . w ise t o d e fe a t

it.

It

was

The p r o p o s i t i o n t o award new s t a t e s

f e w e r r e p r e s e n t a t i v e s t h a n t h e i r p o p u l a t i o n w o u ld e n t i t l e them t o was v i c i o u s . c id e d

W ith i t s d e f e a t ,

t h e C o n v e n tio n d e ­

i t was u n n e c e s s a r y t o m e n t i o n t h e e q u a l i t y o f s t a t e s

in th e C o n s t it u t io n . bear out t h i s

The d e c i s i o n s o f t h e f e d e r a l c o u r t s

b e lie f.

A l l s t a t e s t o be g u a r a n t e e d t h e i r t e r r i t o r y 4.

A ll s ta te s

t o be g u a r a n t e e d t h e i r e x i s t i n g

U nder t h e A r t i c l e s s t a t e s had shown t h e i r

la w s

o f C o n f e d e r a t i o n som e o f t h e w e a k e r

i n a b i l i t y t o p r o t e c t t h e m s e l v e s fr o m

w i t h o u t , o r t o p r e s e r v e p e a c e and g o o d o r d e r w i t h i n t h e i r b o u n d a r ie s.

T h i s f a c t p r o m p te d t h e c o n s i d e r a t i o n o f e m e r ­

gency p r e v e n tiv e m easures.

Among t h e members t h e r e w as a

d i v e r g e n c e o f o p i n i o n e x p r e s s e d a s t o w hat g u a r a n t e e s s h o u l d be g iv e n th e s t a t e s

by t h e g e n e r a l g o v e r n m e n t .

R a n d o lp h fs

o r i g i n a l r e s o l u t i o n s had p r o v i d e d t h a t a r e p u b l i c a n g o v e r n ­ ment and t h e t e r r i t o r y o f e a c h s t a t e it.

s h o u l d be g u a r a n t e e d t o

The s e c o n d o f t h e s e c l a u s e s a r o u s e d o p p o s i t i o n i n v i e w

o f t h e f a c t t h a t a t t h e tim e t h e r e e x i s t e d to th e t e r r it o r y

in d if f e r e n t

c l a u s e s w ere r e d r a f t e d

sta tes.

c o n f l i c t i n g c la im s

A c c o r d i n g l y t h e tw o

so as t o p r o v id e fo r th e g u a ra n tee to

e a c h s t a t e o f a " R e p u b li c a n C o n s t i t u t i o n and i t s

e x is tin g

115 la v s .”

A p p r o v a l o f t h i s was u n a n im o u s b u t t e m p o r a r y . On J u l y 1 8 , w hen t h e q u e s t i o n came up a g a i n , o b j e c ­

t i o n s t o g u a r a n t e e in g t h e u n w ise la w s o f c e r t a i n s t a t e s t h e poor c o n s t i t u t i o n s o f o t h e r s , w ere v o i c e d . c l a u s e s w ere f i n a l l y d i s c a r d e d ,

and

T hese

and a s u b s t i t u t e m o t i o n t h a t

”a R e p u b l i c a n fo r m o f g o v e r n m e n t s h a l l b e g u a r a n t e e d t o e a c h s t a t e and t h a t e a c h s t a t e

s h a l l be p r o t e c t e d a g a i n s t f o r e i g n

and d o m e s t i c v i o l e n c e ” was .a d o p t e d w i t h o u t d i s s e n t and w as l a t e r p la c e d in th e C o n s t it u t io n . The C o n s t i t u t i o n a l C o n v e n t i o n d i d w e l l t o d e f e a t t h e s e tw o p r o p o s i t i o n s .

To g u a r a n t e e t o e a c h s t a t e

its

t e r r i t o r y w o u ld h a v e made i t

i n p o s s i b l e to a l t e r boundary

lin e s ;

la w s i s

to g u aran tee e x is t in g

obscure.

t h a t t h e C e n t r a l G overnm ent w o u ld a i d sta te

la w s?

D id i t

repeal e x is tin g

mean t h a t s t a t e s

D id i t mean

in th e en fo rcem en t o f c o u l d n o t amend o r

l a w s ? - I n e i t h e r c a s e t h e p r o v i s i o n w h ic h

w e n t i n t o t h e C o n s t i t u t i o n w as v a s t l y s u p e r i o r . 5*

T h e .c h ie f e x e c u t iv e o f each s t a t e to be chosen by th e g e n e r a l governm ent One o f t h e more d i f f i c u l t

o f t h e p r o b le m s d e a l t w i t h

b y t h e C o n s t i t u t i o n a l C o n v e n t i o n w as t h a t o f c o n c e n t r a t i n g i n t h e C e n t r a l G overn m en t p o w e r w h ic h w o u ld a d e q u a t e l y c o n ­ t r o l t h e s t a t e s and w h ic h a t t h e sam e t i m e w o u ld n o t a r o u s e i n th em an a n t a g o n i s m s u f f i c i e n t t o

i n t e r f e r e w ith th e f i n a l

r a t i f i c a t i o n o f t h e new C o n s t i t u t i o n .

H a m ilto n , one o f th e

116 ex trem e N a t i o n a l i s t s

i n t h e C o n v e n tio n , w ent f a r beyond t h e

i d e a s o f m o s t members when h e s u g g e s t e d ernm ent t h a t t h e s t a t e

"governors" o r

in h is p la n o f g o v ­

" p r e sid e n ts " be

a p p o in te d by t h e g e n e r a l g o v e rn m e n t.

The C o n v e n t io n w i s e l y

i g n o r e d t h i s p r o p o s a l , w h i c h w o u ld h a v e d e p r i v e d t h e s t a t e s o f o n e o f t h e i r m ost c h e r i s h e d p r e r o g a t i v e s . 6.

The N a t i o n a l L e g i s l a t u r e t o v e t o s t a t e

la w s c o n t r a v e n in g

t h e la w s o f t h e U n io n 7.

The N a t i o n a l L e g i s l a t u r e t o v e t o

s t a t e l a w s deem ed

im p r o p e r There w ere r e p e a te d e f f o r t s

t o c o n fe r on t h e g e n e r a l

governm ent t h e pow er t o n e g a t i v e s t a t e

la w s.

T h is w as n o t

s t r a n g e , a s one o f th e c h i e f c a u s e s o f t h e C o n s t i t u t i o n a l C o n v e n t i o n had b e e n t h e e v i l s isla tio n

a r i s i n g fro m u n j u s t s t a t e

le g ­

and fr o m t h e l a c k o f p o w e r o f t h e C o n g r e s s o f t h e

C on fed eracy to ch eck t h e s e

in ju stic e s.

A ll th e d e le g a te s

w e r e c o n v i n c e d o f t h e n e c e s s i t y o f f i n d i n g some m eans o f c o n t r o llin g th e s t a t e

le g isla tu r e s .

On May ]51 t h e y a g r e e d

t o a c c e p t t h e rem edy p r o p o s e d by t h e R a n d o lp h r e s o l u t i o n w h ic h g a v e t o t h e N a t io n a l L e g i s l a t u r e t h e r i g h t t o n e g a t i v e la w s p a s s e d by a s t a t e

c o n tr a v e n in g ,

in th e o p in io n o f th e

N a t i o n a l L e g i s l a t u r e , t h e A r t i c l e s o f U n io n . As d i s c u s s i o n s c o n t i n u e d , h o w e v e r , t h e r e w as a g r e a t d iv e r g e n c e o f o p in io n .

W i l l i a m s o n , S h erm an , G e r r y , B u t l e r ,

Morris* and o t h e r s o p p o s e d t h i s

r ig h t to n e g a tiv e s in c e

m ig h t be u s e d t o e n s l a v e t h e s t a t e s , w h i l e i t s p o rters*

it

str o n g su p­

among whom w e r e M ad ison * M a r t i n , and P in c k n e y *

c o n sid e r e d th e v e to th e o n ly e f f e c t i v e T h eir e f f o r t s

ch eck on th e s t a t e s .

on J u l y 17* h o w e v e r , t o g e t t h e R a n d o lp h

r e s o lu t io n r e a ffir m e d f a ile d *

a s d i d C h a r l e s P i n c k n e y 1s

p r o p o s a l t h a t C on gress be g iv e n th e a u t h o r i t y to n e g a t iv e a ll

sta te

la w s w h ic h t h e y s h o u l d j u d g e t o b e i m p r o p e r .

The p r o b l e m o f k e e p i n g t h e s t a t e s w i t h i n t h e i r p r o p e r l i m i t s was s a t i s f a c t o r i l y sta te

se ttle d -w h e n a u th o r ity to d e c la r e

la w s u n c o n s t i t u t i o n a l w as a ssu m e d by t h e f e d e r a l

co u rts.

CHAPTER IX MISCELLANEOUS PROPOSITIONS 1.

P r o p o sitio n to put in to

th e C o n stitu tio n a c la u s e

lim it­

in g th e r ig h t o f th e s u f f r a g e to f r e e h o ld e r s As a l l t h e s t a t e s

i n 1 7 8 7 h ad p r o p e r t y q u a l i f i c a t i o n s

fo r th e e le c t o r s o f t h e ir s t a t e

le g isla tu r e s ,

i t w as o n l y

n a t u r a l t h a t s i m i l a r p r o p o s a l s s h o u l d he made i n t h e C o n v en ­ t i o n w h en t h e s u b j e c t o f q u a l i f i c a t i o n f o r e l e c t o r s o f members o f t h e N a t i o n a l L e g i s l a t u r e came up f o r d i s c u s s i o n on A u g u s t 6 and 7*

The p r o p o s a l t h a t a c l a u s e l i m i t i n g t h e

s u f f r a g e t o f r e e h o l d e r s be p l a c e d

i n t h e C o n s t i t u t i o n came

fro m M o r r i s , who w as a l w a y s p a r t i a l t o m e a s u r e s w h ic h em­ p h a s i z e d w e a l t h i n som e fo rm o r o t h e r .

T h i s w as o p p o s e d b y

B u t l e r , E l l s w o r t h , W i l s o n , Gorham, and o t h e r s who f e l t i t was u n w i s e t o

i n c l u d e a r e s t r i c t i o n w h ic h w o u ld e x c l u d e

many w o r t h y c i t i z e n s m ec h a n ics.

th at

among t h e m e r c h a n t s ,

sto c k h o ld e r s,

and

M a d is o n , who c o n s i d e r e d t h e r i g h t o f s u f f r a g e a

fu n d a m en ta l p r i n c i p l e o f r e p u b lic a n g o v ern m en t, w ish ed a r e g u la tio n o f su ffra g e

i n t h e C o n s t i t u t i o n w h ic h w o u ld p r e ­

v e n t d i s c r i m i n a t i o n f o r o r a g a i n s t a n y g r o u p o r c l a s s who w ere i n t e r e s t e d ly d e c lin e d

in th e govern m en t.

to d o ,

fo r,

c o n fin e th e p r iv ile g e

T h is t h e d e l e g a t e s

fin a l­

a f t e r d e f e a t i n g M o r r is 1 m o tio n t o

o f v o t i n g t o t h o s e who p o s s e s s e d

la n d ,

119 th ey proceeded to

le a v e th e r e g u la tio n o f th e q u a lif ic a t io n s

f o r v o t in g i n th e hands o f th e s t a t e s . C o n tro l o f th e f r a n c h is e

is

c o n s id e r e d to d a y t o be one

o f th e fu n d am en tal pow ers r e s e r v e d t o th e s t a t e s . 2.

A s s e n t o f t h e N a t i o n a l L e g i s l a t u r e o u g h t n o t t o be r e q u i r e d f o r am endm ents

3-

Amendments m u st b e

r a t i f i e d by a l l o f t h e s t a t e s

4.

C ongress t o c a l l a

n a t io n a l c o n v e n tio n t o

propose

amend­

m e n ts w i t h o u t h a v i n g b e e n r e q u e s t e d t o d o so b y t h e s t a t e s A t no t i m e d u r i n g t h e C o n v e n t i o n d i d t h e f r a m e r s o f th e C o n stitu tio n th in k

th a t th e f i n a l r e s u lt o f th e ir

w o u ld be a b a s i s f o r a

f a u l t l e s s govern m en t.

tio n s

la b o r s

Thus t h e

q u es­

c o n c e r n i n g a m eth o d f o r m akin g f u t u r e a l t e r a t i o n s w e re

c o n s i d e r e d m o st s e r i o u s l y .

T h e r e f o r e much t i m e and l a b o r

w e r e u s e d i n w o r k i n g o u t a m eth o d w h e r e b y t h e C o n s t i t u t i o n m ig h t be c h a n g e d , a f t e r o f th e p e o p le .

its

r a tific a tio n ,

to m eet t h e n e e d s

T h a t t h i s m eans s h o u l d b e r e g u l a r and Con­

s t i t u t i o n a l was t h e o n e p o i n t o n w h ic h a l l a g r e e d .

The

A r t i c l e s o f C o n f e d e r a t i o n had p r o v i d e d f o r t h e i r own am end­ m ent o n t h e a s s e n t o f C o n g r e s s and o f t h e l e g i s l a t u r e s th e s t a t e s .

of a ll

R a n d o lp h on May 3 1 , d e p a r t e d r a d i c a l l y fro m t h i s

when h e p r o p o s e d t h a t t h e a s s e n t o f t h e N a t i o n a l L e g i s l a t u r e ought n ot to be r e q u ir e d .

D i f f e r e n c e s o f o p i n i o n on t h i s

120 b ro u g h t abou t I t s p o stp o n em en t t w i c e ,

and i t w as f i n a l l y

d r o p p e d by a s p e c i a l c o m m i t t e e o n Jun e 13* L a t e r t h e C o m m ittee o f D e t a i l s u b s t i t u t e d

fo r t h is

a p r o v is io n th a t on a p p lic a t io n o f th e l e g i s l a t u r e s o f tw o th ir d s o f th e s t a t e s

i n t h e U n io n f o r an amendment o f t h e

C o n s t i t u t i o n , t h e C ongress sh o u ld c a l l a c o n v e n tio n f o r t h a t pu rp ose.

O b je c tio n s t o t h i s w ere r a is e d on th e grounds t h a t

su ch a c o n v e n t io n c o u ld p r o p o s e , b y a 'm er e m a j o r i t y v o t e , am endm ents w h ic h m ig h t i n c r e a s e t h e p o w e r o f t h e s t a t e s t o th e g r e a t d is a d v a n ta g e o f th e n a t io n a l govern m en t. on A u g u s t 3 0 o p p o s e d t h e c l a u s e f o r a n o t h e r r e a s o n .

M o r r is He t o o k

e x c e p t io n to th e f a c t t h a t th e N a t io n a l L e g is la t u r e c o u ld c a l l a c o n v e n t i o n f o r p u r p o s e s o f amendment o n l y o n a p p l i c a ­ t io n o f tw o -th ir d s o f th e s t a t e s .

H e, t h e r e f o r e , moved t h a t

th e N a tio n a l L e g is la t u r e be a t l i b e r t y t o c a l l a c o n v e n tio n f o r p u r p o s e s o f amendment w i t h o u t h a v i n g b e e n r e q u i r e d t o do so by t h e s t a t e s .

No o n e s u p p o r t e d h i s

id e a .

As I s w e l l

known, t h e c o m p l e t e d C o n s t i t u t i o n c o n t a i n s tw o m e th o d s o f p r o p o s i n g am endm ents and tw o m e th o d s o f r a t i f y i n g t h e sa m e . As a r u l e amendments, a r e p r o p o s e d b y t h e n a t i o n a l g o v e r n m e n t and r a t i f i e d

by th e s t a t e s .

The s y s t e m w o r k s w e l l .

The Con­

v e n tio n a cted w is e ly in d e fe a tin g th e p r o p o s itio n to th e e f f e c t t h a t C o n g r e s s s h o u l d h a v e n o p a r t i n t h e m aking o f t h e a m en d m e n ts.

I t a l s o d id w e l l in d e f e a t i n g t h e req u irem en t-

121 f o r u n a n im o u s c o n s e n t o f a l l

s ta te s fo r r a t if ic a t io n .

It

is

hard enough to g e t t h r e e - f o u r t h s o f t h e s t a t e s t o a g r e e . On t h e o t h e r h a n d , t h e p r o p o s a l t h a t C o n g r e s s b e g iv e n a u th o r ity to c a l l a n a tio n a l c o n v e n tio n fo r th e purpose o f p r o p o s i n g a m en d m e n ts, w i t h o u t h a v i n g b e e n r e q u e s t e d t o do s o b y t h e s t a t e s , m ig h t h a v e had many a d v a n t a g e s . 5.

P r o p o s itio n to

in c lu d e a B i l l o f R ig h ts

in th e C o n s titu ­

tio n a.

C h a r l e s P i n c k n e y s u g g e s t e d many b i l l o f r i g h t s p r o v i s i o n s

b.

J u r ie s

in c i v i l cases

c . P r o p o s i t io n t o g u a r a n te e freed om o f th e p r e s s d.

C on gress t o h ave no pow er to i n p a i r t h e o b l i g a t i o n o f co n tra cts

e . The m i l i t a r y s h a l l b e s u b o r d i n a t e t o t h e c i v i l p o w er f.

The w r i t o f h a b e a s c o r p u s t o b e s u s p e n d e d by t h e N a t i o n a l L e g is la tu r e When t h e new C o n s t i t u t i o n w as f i n a l l y

p e o p le fo r r a t i f i c a t i o n ,

se n t to th e

o n e o f t h e m o st o b j e c t i o n a b l e p o i n t s

was t h e o m i s s i o n o f a B i l l o f R i g h t s , w i t h o n l y t h e p r o m i s e t h a t C o n g r e s s w o u ld n o t e x e r c i s e c e r t a i n p o w e r s u n t i l amend­ m e n ts e m b o d y in g a B i l l o f R i g h t s c o u l d b e a d d e d .

C o n sid e rin g

t h e h i g h e s t e e m i n w h ic h t h e p e o p l e had p r e v i o u s l y h e l d g u a ra n tees o f p e r so n a l l i b e r t i e s

s u c h a s had b e e n i n c l u d e d i n . *

a l l s t a t e c o n s t i t u t i o n s and a l s o t h e D e c l a r a t i o n o f I n d e p e n d ­ ence,

it

is

s tr a n g e th a t o n ly a sm a ll m in o r ity o f th e d e le g a t e s

122 r e a l i z e d t h a t t h e o m i s s i o n o f s u c h a n e n u m e r a t i o n m ig h t d e l a y o r e v e n p r e v e n t t h e r a t i f i c a t i o n o f t h e new C o n s t i t u t i o n . A l l members o f t h e C o n v e n t i o n w e r e v i g o r o u s s u p p o r t e r s o f personal lib e r t y ,

and t h e m a j o r i t y w e r e c o n f i d e n t t h a t

w i t h i n t h e C o n s t i t u t i o n i t s e l f w e r e e m b o d ie d s a f e g u a r d s e q u i v a l e n t t o a n y r e s t r i c t i o n up on g o v e r n m e n t a l p o w e r w h ic h m ig h t be c o n t a i n e d

in a B i l l o f R ig h ts.

T hese d id n o t r e a l ­

i z e th e a c tu a l b read th o f a u t h o r it y v e s te d c e r ta in c o n s titu tio n a l g r a n ts, n e c e s s a r y and p r o p e r .

i n C ongress by

s u c h a s t h o s e t o make a l l l a w s

Among t h e fe w who d i d r e a l i z e

th e n eed ,

and who s t r o v e t o p l a c e r e s t r i c t i o n s u p o n t h e n a t i o n a l l e g i s ­ la tiv e

a u t h o r i t y and t o r e s e r v e s p e c i f i c

r ig h t s o f th e in ­

d i v i d u a l b y c o n s t i t u t i o n a l g u a r a n t e e w e r e M a d is o n , M a son , G e r r y , C h a r l e s P in c k n e y , and W i l l i a m s o n . On S e p t e m b e r 12 M aso n , who h ad b e e n t h e a u t h o r o f t h e f i r s t B i l l o f R ig h ts i n

an A m e r ic a n c o n s t i t u t i o n , e x p r e s s e d

r e g r e t t h a t a B i l l o f R ig h ts d id n o t p r e fa c e th e C o n s t it u t io n , b u t a s u b s e q u e n t m o t i o n , made b y G e r r y , t h a t a c o m m i t t e e b e i n s t r u c t e d t o p r e p a r e s u c h a b i l l w as d e f e a t e d . E a r l i e r a t t e m p t s o f P i n c k n e y , a n a r d e n t ch arrp ion f o r a B i l l o f R i g h t s , m et w i t h c o m p l e t e f a i l u r e t o o .

On A u g u s t

20 h e had o f f e r e d f o r t h e a p p r o v a l o f t h e C o n v e n t io n a num ber o f c l a u s e s w h ic h c o n s t i t u t e d b i l l o f r ig h ts.

in th e m s e lv e s a lm o st a c o m p lete

Among t h e s e p r o v i s i o n s , w h ic h w e r e s e n t t o

t h e C o m m ittee o f D e t a i l , w e r e t h e f o l l o w i n g :

The p r i v i l e g e

123 o f t h e W r it o f H a b ea s Corpus s h a l l n o t b e s u s p e n d e d by t h e L e g i s l a t u r e e x c e p t f o r a l i m i t e d t i m e n o t e x c e e d i n g _______ m on th s.

The l i b e r t y o f t h e p r e s s s h a l l be i n v i o l a b l y

p reserved . pow er.

The m i l i t a r y s h a l l b e s u b o r d i n a t e t o t h e c i v i l

No s o l d i e r s h a l l b e q u a r t e r e d i n a n y h o u s e i n t i m e

o f p e a c e w ith o u t c o n se n t o f th e ow ner. When i t w as e v i d e n t t h a t t h e C o m m ittee d i d n o t to

in c lu d e th e s e

i n a n y r e c o m m e n d a t io n o r r e p o r t ,

t o g e t t h e C o n v e n t i o n t o p a s s f a v o r a b l y on s i n g l e m ad e.

in te n d

effo rts ite m s w ere

P in c k n e y f s m o tio n on A ugust 2 8 , a r e n e w a l o f h i s p r e ­

v i o u s p r o p o s a l t h a t t h e W r it o f H abeas C orpus s h o u l d n o t be s u s p e n d e d e x c e p t on t h e m o s t u r g e n t o c c a s i o n s * and t h e n o n l y f o r a l i m i t e d t e r m not e x c e e d i n g a y e a r , was n o t p u t t o v o te,

b eca u se a -sim ila r -m o tio n p r o p o sin g t h a t th e p r i v i l e g e

o f t h e W r it* o f H abeas C orpus s h a l l n o t be s u s p e n d e d , u n l e s s i n c a s e s o f r e b e l l i o n o r i n v a s i o n a s p u b l i c s a f e t y may r e ­ q u i r e , was a p p r o v e d .

The l a t t e r w i t h s l i g h t c h a n g e i n

p h r a s e o l o g y becam e A r t i c l e

I,

S e c tio n 9 o f th e C o n s titu tio n .

On S e p t e m b e r 14 G e r r y ’ s e f f o r t t o r e v i v e o n e o f P i n c k n e y ’s p r o p o s a l s , n a m e ly , t h a t

”t h e l i b e r t y o f t h e p r e s s be i n v i o ­

l a b l y p r e s e r v e d , ” was d e f e a t e d ,

a s w as h i s m o t i o n o f A u g u s t

12 u r g i n g ' t h e n e c e s s i t y o f s e c u r i n g t r i a l by j u r y i n c i v i l c a s e s as a s a fe g u a r d a g a in s t c o r r u p t p o s a l t h a t C o n g r e s s be p r o h i b i t e d p a i r i n g o b l i g a t i o n s w as r e j e c t e d . p la c e d on s t a t e

ju d g es.

E ven t h e p r o ­

fro m p a s s i n g a n y la w im ­ T h is r e s t r a i n t ,

a lr e a d y

l e g i s l a t u r e s , was n o t e x t e n d e d t o t h e N a t i o n a l *

124 L e g is la tu r e b ecau se o f th e b e l i e f t h a t , c o n t a i n e d no g r a n t o f s u c h p o w e r t o str ic tio n

s in c e th e C o n stitu tio n

C on gress, a d e f i n i t e

re­

o f a p o w e r w h e r e n o n e e x i s t e d w o u ld be s u p e r f l u o u s .

By d e f e a t i n g t h e p r o p o s i t i o n t o em body a B i l l o f R ig h ts

i n t h e o r i g i n a l C o n s t i t u t i o n , t h e C o n v e n t i o n made i t s

g r e a te s t m ista k e ,

a m i s t a k e w h ic h n e a r l y p r e v e n t e d t h e r a t i ­

f i c a t i o n o f th e d o cu m en t. 6a .

P r o p o sitio n s th a t C o n s titu tio n be r a t i f i e d

by a second

n a t i o n a l C o n v e n tio n b . T h a t t h e m eth o d o f r a t i f i c a t i o n c . T h at s t a t e

le g isla tu r e s

be l e f t

c a ll r a tify in g

to th e s t a t e s c o n v e n tio n s as

q u ic k ly as p o s s ib le When t h e C o n s t i t u t i o n a l C o n v e n t i o n w as c a l l e d , C o n g r e s s o f t h e C o n f e d e r a c y h ad s t i p u l a t e d am endm ents t o t h e A r t i c l e s up and s u b m i t t e d t o la tu r e s

th a t a se t of

o f C o n f e d e r a t i o n was t o b e draw n

C o n g r e s s and t o t h e s e v e r a l s t a t e

fo r r a t if ic a t io n .

th e

le g is­

A lth o u g h t h e s e d i r e c t i o n s w ere n o t

c a r r i e d o u t , t h e y w e r e b y no m eans i g n o r e d d u r i n g t h e d e l i b ­ e r a tio n s.

One f a c t i o n ,

i n w h i c h w e r e S h erm a n , G e r r y ,

E l l s w o r t h and L u t h e r M a r t i n , t o o k t h e s t a n d t h a t t h e new governm ent sh o u ld r e s t upon th e r a t i f i c a t i o n l e g i s l a t u r e s , w h ile a n o th er ,

o f th e s t a t e

i n c l u d i n g M a d i s o n , M ason, K i n g ,

R a n d o lp h , W i l s o n , Gorham, M o r r i s , and W i l l i a m s o n , w e r e a s d e ter m in e d t h a t th e p e o p le .

i t b e e s t a b l i s h e d by a m ore d i r e c t a c t i o n o f

125 O n ly a f t e r a v i g o r o u s f i g h t d i d t h e d e c i s i o n p r e v a i l t h a t t h e new C o n s t i t u t i o n s h o u l d b e r a t i f i e d e le c te d

by t h e p e o p l e o f t h e s t a t e s

by c o n v e n tio n s

r a t h e r t h a n by t h e s t a t e

le g isla tu r e s. G ouverneur M o r r is , w h ile a p p ro v in g a p o p u la r v o t e , o p p o s e d t h e p l a n f o r num erous- s t a t e a s a m eans o f f a c i l i t a t i n g tio n ,

th at

it

c o n v e n t i o n s and p r o p o s e d ,

t h e a d o p t i o n o f t h e new C o n s t i t u ­

be r e f e r r e d t o o n e g e n e r a l c o n v e n t i o n c h o s e n

and a u t h o r i z e d b y t h e p e o p l e t o a c c e p t o r r e j e c t t h e new system . On A u g u s t 6 , a f t e r t h e C o m m ittee o f D e t a i l had p r o ­ v i d e d a d e t a i l e d mode o f r a t i f i c a t i o n

i n w h ic h t h e a p p r o b a t i o n

o f C o n g r e s s and t h e a p p r o v a l o f t h e c o n v e n t i o n s o f a num ber o f s t a t e s w e r e r e q u i r e d , M o r r i s , a n x i o u s t h a t t h e new g o v e r n ­ ment b e b r o u g h t a b o u t a s e a s i l y and s p e e d i l y a s p o s s i b l e , moved t h a t t h e r e q u i r e m e n t o f a l l o r a p r o p o r t i o n o f s t a t e c o n v e n t i o n s be s t r i c k e n o u t , and a c l a u s e p e r m i t t i n g t h e sta tes tu ted .

t o p u r s u e t h e i r own mode o f r a t i f i c a t i o n be s u b s t i ­ When t h i s w as d e f e a t e d ' , h e p r o p o s e d t h a t t h e c l a u s e

w h ic h made n e c e s s a r y t h e a p p r o b a t i o n o f C o n g r e s s b e d i s p e n s e d w ith ,

sin c e

i t w o u ld o n l y r e t a r d t h e a d o p t i o n , and t h a t t h e

s t a t e s b e i n s t r u c t e d t o c a l l c o n v e n t io n s a s q u i c k ly as p o s ­ sib le .

The f o r m e r was a g r e e d t o , b u t t h e l a t t e r was n o t

f a v o r e d a s i t was t h e g e n e r a l o p i n i o n t h a t t h e s t a t e s

sh o u ld

be g i v e n t i m e t o c o n s i d e r and t o u n d e r s t a n d t h e new d o cu m en t

126 o f t h e g o v e r n m e n t w h ic h t h e y w e r e a s k e d t o a c c e p t . The p r o p o s i t i o n t h a t a s e c o n d n a t i o n a l c o n v e n t i o n h e c a lle d

to r a t if y th e C o n stitu tio n ,

e v e n t o amend i t ,

s tr o n g h a c k in g i n th e C o n s t i t u t i o n a l C o n v e n tio n . w ise ly d e fe a te d . its

The p r o p o s a l t o

le t

r e c e iv e d

I t was

each s t a t e d e ter m in e

own m ethod o f r a t i f i c a t i o n w o u ld h a v e p r o d u c e d c o n f u s i o n .

I t was much b e t t e r t o p r o v i d e f o r a u n i f o r m p r o c e d u r e . 7.

The C o n s t i t u t i o n t o b e r a t i f i e d s t a t e s , n in e s t a t e s ,

by s e v e n s t a t e s ,

ten s t a t e s ,

W h i l e t h e mode o f r a t i f i c a t i o n

and t h i r t e e n s t a t e s s u g g e s t e d b y t h e Com­

m i t t e e o f D e t a i l was u n d e r c o n s i d e r a t i o n , th a t th e

e ig h t

th e f i r s t

c la u s e ,

" r a t i f i c a t i o n o f _______ . s t a t e s " s h a l l b e s u f f i c i e n t

fo r o r g a n iz in g t h i s

C o n s t it u t io n , brought f o r t h d iv e r s e

o p in io n s a s to w h eth er th e agreem ent o f th e t h i r t e e n s t a t e s o r o f a p o r t i o n o f t h a t number s h o u l d be r e q u i r e d f o r t h e r a tific a tio n th ereo f.

C a r r o l l and L u t h e r M a r t in t o o k t h e

v i e w t h a t s i n c e t h e u n a n im o u s c o n s e n t h ad b e e n r e q u i r e d f o r t h e r a t i f i c a t i o n o f t h e A r t i c l e s o f C o n f e d e r a t i o n t h e same sh o u ld b e r e q u ir e d t o d i s s o l v e t h e e x i s t i n g to

in itia te

C o n f e d e r a c y and

an e n t i r e l y new s y s t e m o f g o v e r n m e n t u n d e r t h e

C o n stitu tio n .

On t h e o t h e r h a n d , W i l s o n , M o r r i s , S h erm a n ,

R a n d o lp h , and o t h e r s w e r e c o n v i n c e d t h a t t h e a g r e e m e n t o f a p o r t i o n o f s t a t e s w o u ld s u f f i c e .

M o r r is o n A u g u s t J>1 o f f e r e d

a s o l u t i o n w h ic h made a c t i o n b y t h e s m a l l e r number o f s t a t e s ,

127 i f th e s t a t e s w ere c o n t ig u o u s , as b in d in g as t h a t o f a g r e a t ­ e r num ber i f t h e y w e r e d i s p e r s e d . by t h e C o n v e n t i o n .

T h i s was w i s e l y i g n o r e d

Mr. W i l s o n , s e n s i n g t h e d i f f i c u l t i e s

to

be met w h en t h e C o n s t i t u t i o n was p l a c e d b e f o r e t h e p e o p l e , f i r s t p r o p o s e d t h a t s e v e n and t h e n t h a t e i g h t s t a t e s b e r e ­ q u i r e d , b u t n e i t h e r number was d eem ed s u f f i c i e n t .

M o tio n s

on A u g u s t JO and a g a i n o n A u g u s t 3 1 t h a t t h e C o n s t i t u t i o n be r a t i f i e d by t h i r t e e n s t a t e s w ere d e f e a t e d ,

a s w e r e S h e r m a n fs

tw o p r o p o s a l s t h a t t e n s t a t e s

be t h e r e q u i r e d number f o r

r a tific a tio n .

agreed th a t th e r a t i f i c a t i o n

I t was f i n a l l y

o f n in e sh o u ld be s u f f i c i e n t ,

b u t t h a t o n l y t h e s t a t e s w h ic h

r a t i f i e d w ere t o b e bound. The p r o p o s a l r e q u i r i n g u n a n im o u s r a t i f i c a t i o n b y a l l t h e t h i r t e e n s t a t e s w o u ld p r o b a b l y h a v e d e f e a t e d t h e a d o p t i o n o f th e C o n s titu tio n .

The r e q u i r e d num ber o f n i n e s t a t e s was

a s n e a r a s t h e C o n v e n t i o n c o u l d come t o t h e t h r e e - f o u r t h s m a jo r ity . 8.

S t a t e s t o r a t i f y w i t h amendm ents

9*

P r o p o s it io n s t o h o ld a seco n d n a t io n a l c o n v e n tio n I t was u n f o r t u n a t e t h a t t h e f r a m e r s o f t h e C o n s t i t u t i o n

d id n o t a t any tim e d u r in g t h e C o n v e n tio n d e r i v e a d e g r e e o f p le a su r e o r ,

a t l e a s t , p e a c e o f mind fr o m some v a g u e r e a l i z a ­

t i o n t h a t t h e new s y s t e m o f g o v e r n m e n t d e v e l o p i n g d a i l y

in

t h e C o m m ittee o f t h e W hole o r i n s p e c i a l c o m m i t t e e s was t o

128 s e r v e so a d e q u a t e ly n o t o n ly t h e p e o p le o f t h e i r tim e but t h o s e o f f u t u r e g e n e r a t io n s as w e l l . tic

Even t h e m o st o p t i m i s ­

o f th e d e le g a t e s w ere n o t e n t i r e l y s a t i s f i e d w ith

r e su lts.

T hese in g e n e r a l f e l t

th a t th e r e s u lt s

o f th e ir

d e l i b e r a t i o n s w e r e o n l y t h e b e s t t h a t c o u l d be e x p e c t e d u n d e r th e c ir c u m sta n c e s ,

w h i l e t h o s e who t o o k t h e m o st p e s s i m i s t i c

■ o u t lo o k w e r e l a b o r i n g u n d e r t h e i m p r e s s i o n t h a t o n l y a s e c o n d g e n e r a l c o n v e n t i o n w o u ld s u f f i c e

t o s a v e t h e c o u n t r y fr o m

r u i n o r , w h a t was c o n s i d e r e d w o r s e , n ic a l a r is to c r a c y .

fro m b e c o m in g a t y r a n ­

Among t h e l a t t e r , w h o se b e l i e f w as t h a t

e x t e n s i v e p o w er h ad b e e n i m p r o p e r l y p l a c e d

in th e c e n tr a l

governm ent t o th e g r e a t d is a d v a n ta g e o f th e i n d iv i d u a l c itiz e n

and t h e s e p a r a t e s t a t e s , w e r e R a n d o lp h , G e r r y , and

M ason. On A u g u s t 3 1 Mason and G e r r y made an u n s u c c e s s f u l a ttem p t to p o stp o n e th e c la u s e c o n c e r n in g th e r a t i f i c a t i o n o f t h e C o n s t i t u t i o n u n t i l t h e N a t i o n a l L e g i s l a t u r e was d e p r i v e d o f c e r t a i n p o w e r s w h ic h t h e y c o n s i d e r e d d a n g e r o u s t o t h e s y s t e m . Mason was c o n v i n c e d t h a t t h e c a l l i n g o f a s e c o n d g e n e r a l c o n v e n t i o n was t h e o n l y a l t e r n a t i v e

i f th is

f u s e d t o make t h e d e s i r e d

ir r ita te d

M ason*s v i e w s , r e t o r t e d

changes.

M o r r is,

one r e ­ by

t h a t h e w o u ld w i s h f o r a n o t h e r i n

h o p e s t h a t t h e d e l e g a t e s w o u ld h a v e t h e f i r m n e s s t o p r o v i d e a v i g o r o u s g o v e r n m e n t , w h ic h s e v e r a l i n t h i s a fr a id to d o .

C o n v e n tio n w ere

129 R a n d o lp h , a l s o , d e s i r i n g e s p e c i a l l y a r e d u c t i o n o f t h e pow ers o f C o n g r e s s , s u g g e s t e d t h a t , r e c t i f y th e e r r o r s ,

i f t h e C o n v e n tio n d id n o t

th e s t a t e c o n v e n tio n s sh o u ld he at l i b ­

e r t y t o p r o p o s e am endm ents t o

be s u b m i t t e d t o

c o n v e n t i o n w h ic h c o u l d r e j e c t

o r i n c o r p o r a t e th e m a s t h e y

judged p r o p e r . a te h is

a n oth er g e n e r a l

On S e p t e m b e r 1 0 , h e t o o k o c c a s i o n t o e n u m e r ­

o b je c tio n s,

and t o p r o p o s e a n e l a b o r a t e r e s o l u t i o n

t o t h e e f f e c t t h a t t h e p la n be s u b m itte d t o fr o m t h e r e t o t h e s t a t e

le g isla tu r e s,

c o n v e n t i o n s h a v i n g p o w er t o

C o n g r e s s ; go

and fro m t h e s e t o s t a t e

ad op t, r e j e c t ,

o r amend; t h e

p r o c e ss to c lo s e w ith an o th er g e n e r a l c o n v e n tio n w ith f u l l p o w er t o e s t a b l i s h f i n a l l y t h e g o v e r n m e n t . not put to v o te , he p e r s is te d

in h i s

su b m itted f i r s t

f o r t h e p u r p o s e o f amendment

to th e s t a t e s

effo rts

When t h i s was t o g e t th e p la n

and t h e n t o a n o t h e r g e n e r a l c o n v e n t i o n a u t h o r i z e d t o make th e f in a l d e c is io n .

C h a r l e s P i n c k n e y , who a s s u r e d t h e mem­

b e r s t h a t h e h i m s e l f was n o t w i t h o u t o b j e c t i o n t o t h e Con­ s t i t u t i o n , p r o t e s t e d t h a t n o t h i n g b u t c o n f u s i o n c o u l d come fr o m c a l l i n g a n o t h e r c o n v e n t i o n .

W ith t h e d e f e a t o f t h i s

p r o p o s i t i o n , R a n d o lp h f s hope o f e f f e c t i n g r a d i c a l ch a n g es in t h e s y s t e m v a n i s h e d , and h e r e f u s e d t o a f f i x h i s

sig n a tu r e

to th e d ocu m en t. The s i m p l e p r o p o s a l o f a s e c o n d c o n t i n e n t a l c o n v e n t i o n to do a b e tte r

job th a n t h e e x i s t i n g

c o n v e n t i o n was d o i n g

was n a i v e .

The s u g g e s t i o n t h a t s t a t e r a t i f y i n g

c o n v e n tio n s

p r o p o s e am endm ents t o be c o n s i d e r e d b y a s e c o n d n a t i o n a l c o n v e n t i o n was n o t b a d . d e la y .

H ow ever,

i t w o u ld h a v e o c c a s i o n e d

The d e f e a t o f t h e p r o p o s i t i o n t h a t t h e s t a t e c o n v e n ­

t i o n s r a t i f y w i t h am endm ents d i d n o t p r e v e n t a m a j o r i t y o f t h o s e c o n v e n tio n s d o in g th a t v e r y t h in g .

CHAPTER X SUMMARY AND CONCLUSION Many b o o k s h a v e b e e n w r i t t e n upon t h e C o n s t i t u t i o n a l C o n v e n t i o n o f 1 7 8 7 and i t s

w ork.

Some o f these"*- h a v e d i s ­

c u s s e d t h e fra m in g o f t h e C o n s t i t u t i o n e m p h a siz in g i t s

e v o lu tio n ,

i n a g e n e r a l way,

s t a g e by s t a g e .

d w e l l u p on t h e d i s c u s s i o n s , d i f f e r e n c e s , t h e C o n v e n tio n .

T h ese works

and c o m p r o m is e s o f

T h e i r aim was t o p i c t u r e t h e e v o l u t i o n o f

th e C o n s t it u t io n as a w h o le .

O th e r b o o k s ,

p

e x p e c ia lly th o se

on t h e o r i g i n o f t h e C o n s t i t u t i o n , h a v e a t t e m p t e d t o t r a c e t h e e v o l u t i o n o f t h e C o n s t i t u t i o n c l a u s e by c l a u s e . in b o th o f th e s e c la s s e s

E m p h a sis

o f b o o k s was p l a c e d u p o n p r o p o s i ­

t i o n s a d o p t e d by t h e C o n v e n t i o n . The a im o f t h i s

stu d y has been to l i s t ,

c la s s ify ,

d i s c u s s t h e more i m p o r t a n t p r o p o s i t i o n s d e f e a t e d v e n tio n .

and

i n t h e Con­

P r a c t i c a l l y e v e r y a c c o u n t o f t h e C o n v e n tio n e v e r

w r i t t e n h a s m e n t i o n e d some o f th e m , b u t no o t h e r s e r i o u s a t t e m p t h a s b e e n made t o d i s c u s s

th e m i n a c o m p r e h e n s i v e

m anner.

F a r r a n d , S c h o u l e r , W a r re n . 2 M e ig s, B u tzn er

152 Some o f t h e p r o p o s i t i o n s d e f e a t e d w e r e o f o v e r w h e lm in g i m p o r t a n c e . d e ta ils

i n t h e C o n v e n t io n

O t h e r s d e a l w i t h m ere

o f d a i l y p r o c e d u r e , or w it h s u b j e c t s t r i v i a l

th e m se lv e s. fro m t h i s

in

T h ese l e s s e r p r o p o s it io n s h ave been o m itte d

stu d y .

A t t h e b e g i n n i n g o f t h e C o n v e n t i o n some m e a s u r e s o r p r o p o s itio n s o f a v e r y g e n e r a l c h a r a c te r w ere d e f e a t e d . o f t h e s e w ere d is c u s s e d

i n C h a p te r I I o f t h i s

th e sis.

Some Among

t h e s e g e n e r a l p r o p o s i t i o n s d e f e a t e d b e f o r e t h e C o n v e n tio n c o u l d go f o r w a r d w i t h i t s

more d e t a i l e d ' w ork w e r e :

(l)

r e v i s e t h e A r t i c l e s o f C o n fe d e r a tio n and , t h e r e f o r e , th e e x i s t i n g C o n fe d e r a tio n ;

To

c o n tin u e

( 2 ) To a s k t h e a p p r o b a t i o n o f

t h e C o n f e d e r a t i o n C o n g r e s s o f t h e w ork o f t h e C o n v e n t i o n ; ( 5 ) To h a v e t h e new C o n s t i t u t i o n r a t i f i e d tu res;

le g isla ­

( 4 ) To r e q u i r e t h e r a t i f i c a t i o n o f a l l t h e s t a t e s ;

( 5 ) To b l o t o u t a l l s t a t e sta te

by s t a t e

(n a tio n ) w ith

boundary l i n e s

and c r e a t e a u n i t a r y

( 6 ) a p u r e N a t i o n a l G o v er n m e n t;

( 7 ) To

e s t a b l i s h a N a t i o n a l L e g i s l a t u r e o f o n e h o u s e o n l y ; and ( 8 ) To p r o v i d e f o r a p l u r a l e x e c u t i v e . A ll o f th e se g en era l p r o p o s itio n s , th e p o s s ib le r e ­ su lts

o f t h e a d o p t i o n o f w h i c h w o u ld h a v e b e e n m o m e n to u s,

w e r e d e f e a t e d , and m o s t p e o p l e w o u ld s a y , w i s e l y d e f e a t e d . A fte r d is c u s s in g th e g e n e r a l p r o p o s itio n s , th e w r ite r p r o c e e d e d t o t a k e up m ore p a r t i c u l a r o r i n d i v i d u a l i t e m s . T h e s e w e r e g r o u p e d u n d e r t h e h e a d i n g s show n i n t h e t a b l e o f

133 c o n t e n t s , n a m e ly :

D efea ted p r o p o s itio n s d e a lin g w ith

The E x e c u t i v e D e p a r t m e n t ; The U p per H o u s e ;

(l)

( 2 ) The N a t i o n a l L e g i s l a t u r e ;

( 4 ) The Lower H o u s e ;

(3 )

( 5 ) The N a t i o n a l J u d i ­

c ia r y ;

( 6 ) The r e l a t i o n o f t h e c e n t r a l g o v e r n m e n t and t h e

sta tes

t o e a c h o t h e r ; and ( 7 ) M i s c e l l a n e o u s p r o p o s i t i o n s .

U n der e a c h o f t h e s e h e a d i n g s , t h e p r o p o s i t i o n s d isc u sse d

w ere

i n a l o g i c a l o r d e r , more t o p i c a l t h a n c h r o n o l o g i c a l

in ' a r r a n g e m e n t . act

lis te d

In m o st c a s e s t h e . w isd o m o f t h e C o n v e n t i o n ’ s

i n d e f e a t i n g t h e p r o v i s i o n was m e n t i o n e d . Some o f t h e p a r t i c u l a r p r o p o s i t i o n s w i s e l y d e f e a t e d h y

t h e C o n v e n tio n — a t l e a s t t h i s

is

in c lu d e th e s u g g e s t io n s :

To g i v e C o n g r e s s p o w e r t o

isla te

(l)

th e v iew o f th e w r i t e r - -

u p o n a n y s u b j e c t u p o n w h ic h i t

m ig h t c h o o s e t o

le g ­

a ct;

( 2 ) To g i v e t h e c e n t r a l g b v e r n m e n t p o w er t o n e g a t i v e a l l sta te

la w s;

( 3 ) To g i v e t h e c e n t r a l g o v e r n m e n t p o w er t o a p ­

p o in t th e s t a t e g o v ern ers;

(4 ) A l i f e

( 5 ) L i f e te r m s f o r S e n a t o r s ; no s a l a r i e s ; c a tio n s

fiv e

to r e c e iv e

( 8 ) To c r e a t e a c o u n c i l o f r e v i s i o n .

o f t h e s e w o u ld h a v e made t h e c e n t r a l g o v e r n ­

m ent a l l - p o w e r f u l . done s o .

( 7 ) Federal o f f i c i a ls

( 7 ) To g i v e C o n g r e s s p o w er t o e s t a b l i s h q u a l i f i ­

fo r su ffra g e;

The f i r s t

te r m f o r t h e P r e s i d e n t ;

In deed, th e f i r s t

o n e a l o n e w o u ld h a v e

The l a s t p r o p o s i t i o n c o m b in e d a c u r i o u s m i x t u r e o f

e x e c u t i v e v e t o and j u d i c i a l r e v i e w . Among t h e p a r t i c u l a r p r o p o s i t i o n s w h i c h ,

in t h e

ju d g ­

ment o f t h e w r i t e r , w e r e u n w i s e l y d e f e a t e d b y t h e C o n v e n t i o n ,

may be m e n t i o n e d t h e f o l l o w i n g : n a tio n a l e x e c u tiv e ; S en a to rs; P re sid e n t;

(l)

P o p u la r e l e c t i o n o f t h e

( 2 ) P o p u la r e l e c t i o n o f t h e U n ite d S t a t e s

(3 ) The c r e a t i o n o f an a d v i s o r y c o u n c i l f o r t h e ( 4 ) To g i v e t h e c e n t r a l g o v e r n m e n t p o w e r t o u s e

fo r c e a g a in st a s t a t e ; th e C o n stitu tio n ;

( 5 ) To i n c l u d e a B i l l o f R i g h t s

in

( 6 ) To g i v e C o n g r e s s p o w e r t o g r a n t c h a r ­

te r s o f in c o r p o r a tio n ;

and ( 7 ) To d e n y C o n g r e s s p o w er t o

im p a ir t h e o b l i g a t i o n s

o f co n tra cts.

The f i r s t

and t h i r d o f

t h e s e d e s i r a b l e p r o p o s i t i o n s h a v e b e e n a c h i e v e d by c u s t o m and p r a c t i c e .

The s e c o n d and f i f t h h a v e b e e n a t t a i n e d b y

c o n s t i t u t i o n a l a m e n d m e n ts.

The f o u r t h p r o v i s i o n ,

if

i t had

f o u n d i t s way i n t o t h e C o n s t i t u t i o n , w o u ld h a v e come i n v e r y handy in i8 6 0 . Some m i n o r , e v e n f o o l i s h , p r o p o s i t i o n s th e C o n v e n tio n —w i s e l y , (l)

rejected

by

o f c o u r se --in c lu d e th e fo llo w in g :

No b u i l d i n g s t o be e r e c t e d a t t h e n a t i o n a l c a p i t a l ;

T h i r t e e n members o f C o n g r e s s t o be c h o s e n b y l o t P r e sid e n t

in c a s e th e e l e c t o r a l c o ll e g e

Members o f C o n g r e s s t o b e ' i n e l i g i b l e n a tio n a l o f f ic e s term s o f o f f i c e

e x is tin g

to e l e c t th e

t o do s o ;

(5 )

t o h o ld o th e r s t a t e o r

f o r one y e a r a f t e r t h e e x p i r a t i o n o f t h e i r in th e n a t io n a l l e g i s l a t u r e ;

t u t io n to gu a ra n tee to each s t a t e (5 ) i t s

fa ile d

(2 )

l a w s ; and

its

e x is tin g te r r ito r y ;

( 6 ) P r o v isio n to

a l l w h i t e p e o p l e and t h r e e - f i f t h s

( 4 ) The C o n s t i ­ and

ta k e a cen su s o f .

of a ll o th ers.

I f th e

t h i r d o f t h e s e p r o p o s i t i o n s had b e e n a d o p t e d , no member o f

135 C ongress c o u ld e v e r h ave been a p p o in te d to t h e c a b in e t o r to th e fe d e r a l c o u r t.

Number f o u r w o u ld h a v e p r e v e n t e d a n y

r e c t i f i c a t i o n o f s t a t e b o u n d a r ie s, w h ile th e e v i l e f f e c t s o f th e a d o p tio n o f th e f i f t h I f th e s ix t h p r o p o s itio n ,

c h a lle n g e s

ju st l is t e d ,

o n e ’s im a g in a tio n . had b e e n a d o p t e d , o n e

w o n d e r s when t h e c e n s u s t a k e r s w o u ld know t h a t t h e y had cou n ted fo re,

”t h r e e - f i f t h s

o f a l l o t h e r p e r s o n s ” and m u s t , t h e r e ­

c e a s e t h e i r e n u m e r a tio n . The s t u d y o f r e j e c t e d p r o p o s i t i o n s h a s b r o u g h t t o

l i g h t t h e g e n e r a l p r o c e d u r e u s e d b y t h e C o n v e n t io n and made c l e a r t h e m e th o d s by w h ic h t h e f o u n d i n g f a t h e r s g l e a n e d from t h e m onths o f d i s c u s s i o n and d e b a t e w h at t h e y c o n s i d e r e d t h e b e s t f o r th e p u r p o se s o f good govern m en t.

A ls o , by r e v e a lin g

t h e d e l i b e r a t i v e c h a r a c t e r o f t h e C o n v e n t i o n , t h e s t u d y sh ow s t o w h a t e x t e n t f i n a l c o n c l u s i o n s w e r e b r o u g h t a b o u t by means o f c o n c i l i a t i o n and c o m p r o m i s e .

The r e j e c t e d p r o p o s i t i o n s ,

w h ic h made up. t h e m a jo r p a r t o f t h e b u s i n e s s o f t h e C o n v en ­ tio n ,

r e fle c t,

e v e n a s v i v i d l y a s do t h o s e a c c e p t e d , t h e

s o c i a l and p o l i t i c a l a m b i t i o n s o f t h e c o l o n i s t s - - t h e i r id e a ls ,

t h e i r lo n g s t r u g g l e f o r freed om ,

f o r e c o n o m ic o p p o r t u n i t y .

f o r m a s t e r y , and

E ven i n d i v i d u a l and c l a s s

in te r e sts

becom e e v i d e n t t h r o u g h t h e s t u d y o f t h e u n s u c c e s s f u l a t t e m p t s o f lo y a l d e le g a te s

t o prom ote t h e i n t e r e s t s

th ey r e p r e se n te d .

The s t u d y o f r e j e c t e d p r o p o s i t i o n s s u p ­

p l e m e n t e d by t h o s e w h ic h w e r e f i n a l l y

o f t h o s e whom

a c c e p t e d makes an

136 i n t e r e s t i n g e x p o s i t i o n o f t h e grow th o f th e s p i r i t o f n a t i o n ­ a lism

in t h e C o n v e n tio n .

I n May, when t h e C o n v e n t i o n o p e n e d ,

t h e m e n t a l o u t l o o k u p o n p r o b le m s o f g o v e r n m e n t w a s ,

in a

m a jo r ity o f c a s e s , c o n fin e d to th e b o u n d a rie s o f a s t a t e o r e n c o m p a s s e d by s e c t i o n a l i n t e r e s t s . a t io n len g th en ed

As t h e w e e k s o f d e l i b e r ­

i n t o m o n t h s , more and more s u p p o r t was g i v e n

t o p r o p o s a l s d e s i g n e d t o s t r e n g t h e n a c e n t r a l g o v e r n m e n t and to . b i n d a l l p a r t s o f t h e c o u n t r y i n t o a u n i f i e d n a t i o n .

W h ile

h i s t o r y h a s p r o v e d t h a t a fe w p r o p o s a l s w e r e u n w i s e l y d e f e a t ­ e d , a s t u d y o f t h e s e r e j e c t e d p r o p o s i t i o n s w o u ld s u r e l y y i e l d a s s u r a n c e t o a l l w h o , f o r o v e r o n e h u n d r e d and f i f t y

years,

h a v e e n j o y e d t h e b e n e f i t s o f t h e g o v e r n m e n t fram ed b y t h e d e le g a te s

in th e C o n v e n tio n , t h a t th e fo u n d e rs o f . o u r C o n s t i­

t u t i o n made a l a r g e m a j o r i t y o f t h e i r d e c i s i o n s w i t h g r e a t w is d o m .

I t se e m s t o t h e w r i t e r t h a t o n l y t h r o u g h t h e s t u d y

o f th e r e j e c t e d p r o p o s itio n s can th e p o s i t i v e

and c o n s t r u c t i v e

w ork o f t h e C o n v e n t i o n b e a c c u r a t e l y e v a l u a t e d .

B I B L I O G R A P H Y

BIBLIOGRAPHY INTRODUCTORY NOTE T h is t h e s i s h as b e e n w r i t t e n e n t i r e l y from t h r e e sources:

(l)

M a d is o n * s N o t e s on D e b a t e s , ( 2 ) Y a t e s 1 S e c r e t

P r o c e e d i n g s , and ( 3 ) J a c k s o n fs J o u r n a l o f t h e C o n s t i t u t i o n a l C o n v e n t io n o f 1 7 6 7 * d e b a t e s , and Y a t e s

S in c e J a c k so n r e p r o d u c e s none o f t h e

is

b r ie f,

th e c h i e f r e lia n c e has been

p la c e d up on M a d iso n f s D e b a t e s . B ecause th e so u r c e s o f t h i s

stu d y have been p r in te d

and a r e i n r e l a t i v e l y b r i e f f o r m , t h e b i b l i o g r a p h y c a n n o t be lo n g .

The w o r k s l i s t e d

p ila tio n s

b e l o w i n c l u d e t e n o f t h e b r i e f com ­

o f s o u r c e s , t o g e t h e r w i t h tw o s e c o n d a r y w o r k s .

The p r i m a r y s o u r c e s a r e l i s t e d no s e n s e t h e o r d e r o f t h e i r an n o ta ted in p a r t .

a l p h a b e t i c a l l y , w h ic h i s

im p o rta n ce.

in

The b i b l i o g r a p h y i s

The w o r k s i n c l u d e d a r e n u m b e r e d , c o n ­

t r a r y to th e u s u a l cu stom , f o r th e p u rp o se o f e a s y r e f e r e n c e in t h e p a r a g r a p h s im m e d ia te ly s u c c e e d in g t h i s

one.

M a d i s o n , s N o t e s o n Defeat p s a r e r e p r i n t e d 1> 2 , 3 ,

4,

5,

7 9 8 , and 9 o f t h e B i b l i o g r a p h y .

by f a r t h e b e s t s o u r c e f o r t h e d i s c u s s i o n s The n o t e s r e p r i n t e d fu lly

i n r e f e r e n c e s 3> 5

9

in r e fe r e n c e s M a d iso n i s

i n th e C o n v e n tio n .

9 9 &nd 1 a r e c a r e ­

e d ite d . Y a t e s 1 S e c r e t P r o c e e d i n g s may b e fo u n d i n r e f e r e n c e s

2, 3

9

9> and 1 0 .

T hey a r e e d i t e d o n l y i n r e f e r e n c e 3 -

h a s b e e n h e l p f u l , n e x t t o M a d is o n .

Y a tes

138 J a c k s o n ’s J o u r n a l i s and 6 .

O n ly r e f e r e n c e s

r e p r in te d

in r e f e r e n c e s

1 and 3 h a v e b e e n e d i t e d .

1 , 2 , J>> S in c e

J a c k so n r e c o r d s p r a c t i c a l l y none o f t h e C o n v en tio n d i s c u s ­ sio n s,

th e o f f i c i a l

jo u r n a l has been o f l i t t l e

h e lp

in t h i s

stu d y . PRIMARY SOURCES 1 . D o c u m e n ta r y H i s t o r y o f t h e C o n s t i t u t i o n o f t h e U n i t e d S t a t e s o f A m e rica . 1 7 8 6 - 1 8 7 0 .

3 v o l s . ; W a s h i n g t o n : D e p a r tm e n t

o f S t a t e , B u rea u o f R o l l s and L i b r a r y , C o m p i l e r , 1 8 9 4 . J a c k s o n ’s J o u r n a l i s a r e i n C h a p te r I I I

i n Volum e I 5 M a d i s o n ’ s D e b a t e s

(c a r e fu lly e d ite d ).

2 . E l l i o t > . J o n a t h a n , c o m p i l e r , The D e b a t e s i n t h e S e v e r a l S t a t e C o n v e n t i o n s on t h e A d o p t i o n o f t h e F e d e r a l C o n stitu tio n , e tc .

5 v o ls .;

P h ila d e lp h ia :

J . B. L i p p i n c o t t

Company, 1 8 3 0 - 1 8 4 5 * J a c k s o n ’s J o u r n a l and Y a t e s ’ M in u t e s a r e I n Volum e I ; M a d i s o n ’ s D e b a t e s c o m p r i s e V olum e V. In g e n e r a l E l l i o t ’s c o m p ila t io n s a r e f u l l o f e r r o r s . 3* F a r r a n d , Max, e d i t o r , The R e c o r d s o f t h e F e d e r a l C o n v en tio n o f 1 7 8 7 . P ress,

1923*

3 v o ls .;

A f o u r t h v o lu m e was ad d ed In 1937*

The g r e a t a u t h o r i t i e s , are r e p r in te d

New H av en : Y a l e U n i v e r s i t y

M a d is o n , Y a t e s ,

i n V olu m es I and I I

and J a c k s o n ,

(c a r e fu lly e d ite d ).

4 . G i l p i n , H en ry D . , e d i t o r , The P a p e r s o f James M a d i s o n . 3 v o l s . ; W a s h i n g t o n : L o n g t r e e and O’ S u l l i v a n , oth er r e p r in ts

1840.

(Many

in oth er c i t i e s . )

M a d i s o n Ts D e b a t e s a r e i n V o l s .

I I and I I I .

(F ir st

p r in t e d e d i t i o n o f M a d is o n .) 3« H u n t, G a i l l a r d , and S c o t t ,

Jam es B . , The D e b a t e s i n

t h e F e d e r a l C o n v e n t i o n o f 1 7 8 7 W hich Framed t h e C o n s t i t u t i o n o f th e U n ite d S t a t e s o f A m e rica .

R e p o r t e d b y James M a d is o n .

New Y o r k : O x fo rd U n i v e r s i t y P r e s s ,

1920.

A c a r e f u lly e d ite d

e d i t i o n o f M a d iso n ’s D e b a t e s . 6 . J a c k so n , W illia m , th e C o n v e n tio n , U n ite d S t a t e s ,

.

.

J o u r n a l, A c ts,

and P r o c e e d i n g s o f

. w h ic h form ed t h e C o n s t i t u t i o n o f t h e

e d i t e d b y J . 0 . Adams.

B o sto n : l8 l9 «

T h i s c o n t a i n s t h e f i r s t p r i n t i n g o f S e c r e t a r y J a c k s o n ’s

l

J o u r n a l. 7 . M a d is o n , J a m e s , The W r i t i n g s o f James Mad i s o n , 9 v o l s . , e d ite d

by G a i l l a r d H u n t .

New Y o r k : G. P . P u tm a n ’s S o n s ,

M a d iso n ’ s D e b a te s a r e r e p r i n t e d 8 . S c o t t , E. H . , e d i t o r , k e p t b y James M a d is o n . 1898.

(U n e d ite d , T h is

I I and I I I .

J o u r n a l o f - t h e F e d e r a l C o n v e n t io n

C h ic a g o : S c o t t ,

F oresm an and Cpmpany,

but su p p lie d w ith in d e x .)

i s n o t J a c k s o n ’s J o u r n a l o f t h e C o n v e n t i o n , b u t

r a t h e r a r e p r i n t o f M a d is o n . fa lse

in V o ls .

1902.

im p r e ssio n .

The t i t l e

g i v e s many p e o p l e a

140 9* T a n s i l l ,

C h a r l e s C . , e d i t o r , D ocu m en ts

Illu str a tiv e

o f t h e F o r m a t io n o f t h e U n io n o f t h e A m e r ic a n S t a t e s . W a s h i n g t o n : G overnm ent P r i n t i n g O f f i c e ,

1927 •

C o n ta in s

M a d iso n * s D e b a t e s and Y a t e s * S e c r e t P r o c e e d i n g s , t o g e t h e r w ith o th e r v a lu a b le d ocu m en ts.

The f o o t n o t e s ,

f o r M a d is o n * s

D e b a t e s a s w e l l a s t h e t e x t a r e r e p r i n t e d fro m r e f e r e n c e 5 abov e . 1 0 . Y a t e s , R o b e r t , S e c r e t P r o c e e d i n g s and D e b a t e s o f t h e C o n v e n t i o n A s s e m b le d a t P h i l a d e l p h i a i n t h e Y e a r o f 1 7 3 7 * e t c . A lb a n y : 1 8 2 1 .

S a i d t o h a v e b e e n c o p i e d f o r p u b l i c a t i o n by

John L a n s i n g , Y a t e s 11 f e l l o w - d e l e g a t e fr o m New Y o r k .

Many

la te r e d itio n s p r in te d . SECONDARY WORKS The l i s t

o f s e c o n d a r y w ork s i s v e r y s h o r t and t h e

trea tm en t b r i e f . 1 1 . M e i g s , W i l l i a m N . , The Growth o f t h e C o n s t i t u t i o n t h e F e d e r a l C o n v e n t io n o f 1 7 8 7 .

in

P h ila d e lp h ia : J . B. L ip p in c o t t

Company, 1 9 0 0 . T h i s w ork i s d e s c r i b e d by i t s

a u t h o r as

nAn e f f o r t

to

t r a c e t h e o r i g i n and d e v e l o p m e n t o f e a c h s e p a r a t e c l a u s e fr o m its

fir st

a p p r o v e d .”

s u g g e s t i o n 11 i n t h e C o n v e n t i o n " to t h e form f i n a l l y .I n t h e m a in p a r t o f t h i s w o r k , v e r y l i t t l e

C o n v e n tio n d e b a t e i s

o f th e

r e p r o d u c e d and v e r y fe w o f t h e d e f e a t e d

141 p r o p o sitio n s

a re m en tio n e d .

how ever, e n t i t l e d ,

The b o o k c o n t a i n s a s e c t i o n , ^

ffSome I m p o r ta n t D e f e a t e d P r o p o s i t i o n s , ”

i n w h ic h s i x t e e n p r o p o s i t i o n s , d e f e a t e d

in t h e C o n v e n tio n ,

a r e enum er a t e d . 12. B u tzn er,

J an e, c o m p ile r , C o n s t it u t io n a l C h a ff:

Re­

j e c t e d S u g g e s t i o n s o f t h e C o n s t i t u t i o n a l C o n v e n t i o n o f 1T87> w i t h E x p l a n a t o r y A r g u m e n t. P ress,

19^1* In t h i s

th e sis

New Y o r k : C o lu m b ia U n i v e r s i t y

r e c e n t w o r k , known t o t h e w r i t e r o f t h i s

o n l y a f t e r t h e t h e s i s was c o m p l e t e , t h e a u t h o r p r i n t s

th e C o n s titu tio n ,

c l a u s e b y c l a u s e , and u n d e r e a c h e n u m e r a t e s

some o f t h e a l t e r n a t e s u g g e s t i o n s m ad e.

The s u p p o r t i n g

a r g u m e n ts o f t h e d e l e g a t e s a r e p a r a p h r a s e d r a t h e r t h a n q u o t e d , w h ic h i s w e l l .

Many o f t h e s e a l t e r n a t i v e p r o p o s i t i o n s w e r e

n e v e r r e a l l y p l a c e d b e f o r e t h e C o n v e n t i o n and w e r e , t h e r e f o r e , never r e a lly r e je c te d . T h i s t h e s i s p l a c e s more e m p h a s is u p on p r o p o s i t i o n s a c t u a l l y b r o u g h t b e f o r e t h e C o n v e n t i o n b y m o t i o n s made b y mem­ b e r s and g i v e s much l e s s

a t t e n t i o n th a n B u tzn er does t o

a l t e r n a t e p r o p o s a l s , w h ic h w ere m e r e ly m en tio n e d i n t h e sp eech es.

The w r i t e r o f t h i s

th e sis

M iss B u t z n e r * s v o lu m e b e c a u s e t h i s h e r book a p p e a r e d .

1 Pages 3 0 5 -3 1 6 .

r e c e i v e d no h e l p

from

s t u d y was c o m p l e t e d b e f o r e