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CHAPTER II.

CONGRESS.

"Most potent, grave, and reverend signiors."

THE legislature of the great American republic is called "Congress," and consists of two bodies-a House of Representatives, elected by the people every two years, its numbers being in proportion to the population as ascertained by the decennial census; and a Senate, consisting of two members chosen by the legislature of each State for six years. The number of representatives at present is 237; of senators 66. The election of senators was so arranged from the beginning that one-third go out every two years, two-thirds of the body being thus persons of some legislative experience. In the formation of the constitution the smaller States were afraid that their individual interests might be swamped by a legislature chosen simply in proportion to population, and, to conciliate them, an equal voice (two votes) was assigned to each State in the Senate. In estimating the

population entitled to members in the House of Representatives, three-fifths of the slaves are reckoned along with the free population: the Slave States insisted upon this. Slaves are spoken of in the constitution as "other persons," "persons held to service," "such persons as any of the States now existing shall think proper to admit " (referring to those brought in by the slave-trade). The words "slave," "slavery," do not occur in this famous document, though slavery, and the slave-trade up to 1808, are distinctly recognized and supported by the constitution. The House of Representatives may be said to be chosen by universal suffrage, the rule being, "the electors in each State shall have the qualifications requisite for electors of the most numerous branch of the State Legislature." The Senate represents the individual States; the House of Representatives, the people as a whole, being based strictly on population. New York elects 33 members; Pennsylvania, 25; Ohio, 21; Massachusetts, 11; Rhode Island, 2; Virginia, 13; North Carolina, 8; South Carolina, 6; Georgia, 8; Kentucky, 10; Tennessee, 10. The members of Congress have each an allowance of about £600 a-year, besides travelling expenses. No senator or representative can,

during the time for which he is elected, hold "any civil office under the authority of the United States." Hence the ministers of state do not appear in either House, and from this arises the very long Presidential message, which is, in fact, part of the ministerial statement for the session. Long detailed reports are at the same time laid before Congress by the Secretaries of the Treasury, of the Interior, at War, and of the Navy, as also by the PostmasterGeneral. I was informed by some American gentlemen that no material inconvenience was felt from the absence of the leading ministers from Congress; that all requisite information was laid before the Houses by the President; that further information could be had on request by a vote; that adequate checks against misgovernment were provided by committees of inquiry, and by the executive action of the Senate, this body, besides its legislative functions, being associated with the President not only in making treaties, but in the appointment of ambassadors, ministers, consuls, judges of the supreme court, and the other officers of the United States. From all I saw or heard of the doings of Congress, however, it appeared to me that there are very great advantages in the European plan of bringing the great ministers.

of state face to face with their real masters in the legislature; and I was told that the eminent American jurist, Judge Story, had serious doubts as to the expediency of the American system. By all accounts, there is no reason to believe that the latter mode secures a purer administration of the great offices of government than the European system. Independently of other obvious considerations, there seemed a want of connection and understanding between the government and the legislative bodies, and the country does not afford a sufficient supply of men of the highest statesmanship for both the ministerial and the senatorial functions, if these are not allowed to be combined in the same individual. It seems an unhappy arrangement, that if the government should require the services of such men as Mr. Douglas or Mr. Seward, the foremost members of the Senate, that body must be deprived of its greatest ornaments and ablest leaders.

Congress meets annually, on the first Monday in December, in the Capitol at Washington, a noble building, beautifully situated. This is one of the finest buildings I have ever seen. It stands at the head of an acclivity, commanding a magnificent view of the city and surrounding country, with the river Potomac,

and in the midst of fine parks and gardens. The principal front is turned from the town, towards an open space, prettily laid out with trees, grass-plots, and public walks. In the middle there is a statue of Washington, with the inscription, "First in war, first in peace, first in the hearts of his countrymen." The other front faces the town, and is reached by winding walks up a grassy bank, interspersed with trees and flowers. Immediately at the foot of this bank is PENNSYLVANIA AVENUE, the principal street in Washington, of great length, with trees at the sides; and WHITE HOUSE, the President's mansion, and other government buildings at the opposite end. The Capitol is in the Corinthian style; the body of freestone, painted white; the wings, only recently constructed, of a beautiful white marble, and all exquisitely finished in every part. Rising from the middle is a huge dome, yet incomplete, but which appeared to me too large for the structure beneath. I should have supposed the building architecturally perfect, and very elegant, without the oppressive mass above it, which Looks as if it would sink down and crush the edifice below it. The American flag waves over each House on the top of the building, while it is sitting, and is lowered when it adjourns, and,

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