formation of a government
having all powers necessary for national sovereignty and independence,
while retaining in the states all powers necessary for local
self-government.

CHAPTER XXI.

ARTICLE I.--THE LEGISLATIVE BRANCH.[1]

SECTION I.--CONGRESS.

_All legislative powers herein granted, shall be vested in a congress of
the United States, which shall consist of a senate and house of
representatives._[2]

[1] The division of governmental functions among three branches has
already been discussed on page 79.

The legislative branch comes first and occupies most space in the
constitution because its framers regarded the legislative as the most
important branch. And laws must be _made_ before they can be interpreted
or executed.

[2] The _reason_ for the creation of two houses or chambers was that thus
only could the conflicting claims of the large and small states be
reconciled. It was, in fact, a _compromise_, the first of a series.

Only a few in the convention thought at first of having two houses, the
plan being to continue as under the articles of confederation with one
house. On the question of apportioning representatives, it was found that
there was a decided difference of opinion. The small states wished to
continue the principle of the articles of confederation, which gave the
several states equal power. But the large states insisted that the power
of a state should be _in proportion to its population_. The differences
were finally settled by the creation of two houses, in one of which the
states should have equal power, and in the other the representation should
be based upon population.

Connecticut has the honor of furnishing this valuable compromise. In her
legislature, representation in one house was based on population; in the
other, the towns had equal representation.

Among the _advantages_ of having two houses, aside from that mentioned on
page 80, are these: It tends to prevent a few popular leaders from
carrying through laws not designed for the common good; it secures a
review of any proposed measure by men elected in different ways and
looking at it from different standpoints. As our congress is organized,
the members of the house of representatives, being elected by popular vote
and for a short term, are likely to represent with considerable
faithfulness the wishes of the people. But the people may be for a time
wrong--as, for instance, in the persecution of the "witches"--a