is much simpler and cheaper than is the assembling of a convention, and even though a constitution is limited to things now regarded as fundamental and permanent, it is likely that the views of the present day as to these matters may change before a new constitution is framed for this state, so that a relatively simple amending process will be necessary even though the constitution may be now regarded as framed in such a manner that it will need infrequent change.

The most important problem as to the relationship between the legislature and the constitution is that of legislative powers. A detailed and complex constitution will of course limit the powers of the general assembly to a very great extent, and will probably require frequent alteration. A simple constitution which seeks to deal merely with fundamentals will leave the general assembly a wider power and will require less frequent amendment. Of course, as has already been suggested, a simple type of constitution containing only fundamentals but containing also broad constitutional guarantees, which have already been strictly construed, may prevent the enactment of legislation which is desired. A further discussion of the whole problem of the construction of broad constitutional guarantees will be found in the pamphlet on the judicial department. It seems desirable to return if possible to a simple constitution and to a simpler legislative machinery, less hedged about by all sorts of limitations. It also seems desirable to bring, if possible, a closer relationship between the executive and the legislative departments in legislation, and through such a closer co-ordination to make more effective the permanent and technical aspects of legislation. If these matters are properly handled, there seems no necessity for adhering to the method now employed in the states of this country of hedging about legislative bodies, and of making the actual enactment of legislation a hazardous task.

Amendment by reference. Consideration has already been given to the problem of amendment by reference in this state. A more detailed discussion of this matter will be found in the pamphlet entitled "Constitutional Conventions in Illinois" and a detailed statement of the results of cases will be found in the Annotated Constitution. The present situation in this state with respect to amendment of prior laws by reference is one which increases very materially the hazards of legislation, without any real gain, and some change should be made in this respect.

Other procedural problems. A discussion appears earlier in this pamphlet of the problem of three readings of each bill at large in the house, and of the problem presented by the constitutional provision as to time when laws shall take effect. Perhaps it may be desirable also that the convention devote some attention to the matter of printing bills with all amendments thereto before final passage. The require

ment as to printing is one with respect to which the supreme court took a very strict view, but this view has been somewhat modified and the difficulty which arose with respect to the holding of legislation unconstitutional because of failure to make journal entries of printing has now largely been met by making of formal entries upon the journals. with respect to this matter in all cases.

APPENDIX NO. 1. REFERENCES.

Reinsch, P. S. American legislatures and legislative methods. New York, 1907.

Dodds, H. W. Procedure in state legislatures. Supplement to Annals of the American Academy of Political and Social Science. Philadelphia, 1918.

Moore, B. F. History of cumulative voting and minority representation in Illinois, 1870-1919. 2d Edition. University of Illinois Studies in the Social Sciences, 1919.

Debel, N. H. The veto power of the governor of Illinois. University of Illinois Studies in the Social Sciences. Vol. VI, Nos. 1, 2. 1917. Barnett, J. D. The bicameral system in state legislation. American Political Science Review, IX, 449 (August, 1915).

Garner, J. W. Legislative organization and representation. Proceedings of the Illinois State Bar Association. 1917. Pages 376-392. Colvin, D. L. The bicameral principle in the New York legislature. Columbia University. New York, 1913.

Temperley, H. V. Senates and upper chambers. London.

Hoag, C. G. Effective voting. 63d congress, 2d session, Senate Doc. 359 (1914).

Humphreys, J. H. Proportional representation, London. 1911.

Massachusetts Constitutional Convention, 1917.

Bulletin No. 9.

Bulletin No. 27.

Bulletin No. 28.

Bulletin No. 29.

Bulletin No. 34

Biennial elections and legislative sessions.
Preferential voting.

Proportional representation.

The basis of the apportionment of representation in the several states.

Special legislation.

APPENDIX NO. 2. CONSTITUTION OF ILLINOIS, ARTICLE IV.

LEGISLATIVE DEPARTMENT.

SECTION 1. The legislative power shall be vested in a General Assembly, which shall consist of a Senate and House of Representatives, both to be elected by the people.

ELECTION.

§ 2. An election for members of the General Assembly shall be held on the Tuesday next after the first Monday in November, in the year of our Lord one thousand eight hundred and seventy, and every two years thereafter, in each county, at such places therein as may be provided by law. When vacancies occur in either house, the Governor, or person exercising the powers of Governor, shall issue writs of election to fill such vacancies.

ELIGIBILITY AND OATH.

§ 3. No person shall be a Senator who shall not have attained the age of twenty-five years, or a Representative who shall not have attained the age of twenty-one years. No person shall be a Senator or a Representative who shall not be a citizen of the United States, and who shall not have been for five years a resident of this State, and for two years next preceding his election a resident within the territory forming the district from which he is elected. No judge or clerk of any court, Secretary of State, Attorney General, State's Attorney, recorder, sheriff, or collector of public revenue, member of either House of Congress, or person holding any lucrative office under the United States or this State, or any foreign government, shall have a seat in the General Assembly: Provided, that appointments in the militia, and the offices of notary public and justice of the peace, shall not be considered lucrative. Nor shall any person holding any office of honor or profit under any foreign government, or under the government of the United States, (except postmasters whose annual compensation does not exceed the sum of three hundred dollars) hold any office of honor or profit under the authority of this State.

§ 4. No person who has been, or hereafter shall be, convicted of bribery, perjury or other infamous crime, nor any person who has been or may be a collector or holder of public moneys, who shall not have accounted for and paid over, according to law, all such moneys due from him, shall be eligible to the General Assembly, or to any office of profit or trust in this State.

§ 5. Members of the General Assembly, before they enter upon their official duties, shall take and subscribe the following oath or af

firmation: "I do solemnly swear (or affirm) that I will support the Constitution of the United States and the Constitution of the State of Illinois, and will faithfully discharge the duties of Senator (or Representative) according to the best of my ability; and that I have not, knowingly or intentionally, paid or contributed anything, or made any promise in the nature of a bribe, to directly or indirectly influence any vote at the election at which I was chosen to fill the said office, and have not accepted, nor will I accept or receive, directly or indirectly, any money or other valuable thing, from any corporation, company or person, for any vote or influence I may give or withhold on any bill, resolution or appropriation, or for any other official act." This oath shall be administered by a judge of the supreme or circuit court in the hall of the house to which the member is elected, and the Secretary of State shall record and file the oath subscribed by each member. Any member who shall refuse to take the oath herein prescribed shall forfeit his office, and every member who shall be convicted of having sworn falsely to or of violating his said oath, shall forfeit his office and be disqualified thereafter from holding any office of profit or trust in this State.

APPORTIONMENT-SENATORIAL.

§ 6. The General Assembly shall apportion the State every ten years, beginning with the year one thousand eight hundred and seventyone, by dividing the population of the State, as ascertained by the Federal census, by the number fifty-one, and the quotient shall be the ratio of representation in the senate. The State shall be divided into fifty-one senatorial districts, each of which shall elect one senator, whose term of office shall be four years. The Senators elected in the year of our Lord one thousand eight hundred and seventy-two, in districts bearing odd numbers, shall vacate their offices at the end of two years, and those elected in districts bearing even numbers, at the end of four years; and vacancies occurring by the expiration of term shall be filled by the election of senators for the full term. Senatorial districts shall be formed of contiguous and compact territory, bounded by county lines, and contain as nearly as practicable an equal number of inhabitants; but no district shall contain less than fourfifths of the senatorial ratio. Counties containing not less than the ratio and three-fourths, may be divided into separate districts, and shall be entitled to two Senators, and to one additional senator for each number of inhabitants equal to the ratio, contained by such counties in excess of twice the number of said ratio.

MINORITY REPRESENTATION.

§ 7 and 8. The House of Representatives shall consist of three times the number of the members of the Senate, and the term of office

shall be two years. Three representatives shall be elected in each Senatorial district at the general election in the year of our Lord one thousand eight hundred and seventy-two, and every two years thereafter. In all elections of representatives aforesaid, each qualified voter may cast as many votes for one candidate as there are representatives to be elected, or may distribute the same, or equal parts