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Under their own construction of the general clause at the end of the enumerated powers, the Congress may grant monopolies in trade and commerce, constitute new crimes, inflict unusual and severe punishments, and extend their power as far as they shall think proper; so that the state legislatures have no security for the powers now presumed to remain to them, or the people for their rights. There is no declaration of any kind for preserving the liberty of the press, the trial by jury in civil cases, nor against the danger of standing armies in time of peace.

The state legislatures are restrained from laying export duties on their own produce; the general legislature is restrained from prohibiting the further importation of slaves for twenty-odd years, though such importations render the United States weaker, more vulnerable, and less capable of defence. Both the general legislature and the state legislatures are expressly prohibited making er post facto laws, though there never was, nor can be, a legislature but must and will make such laws, when necessity and the public safety require them, which will hereafter be a breach of all the constitutions in the Union, and afford precedents for other innovations.

This government will commence in a moderate aristocracy: it is at present impossible to foresee whether it will, in its operation, produce a monarchy or a corrupt oppressive aristocracy; it will most probably vibrate some years between the two, and then terminate in the one or the other.

GEO. MASON.

ADDRESS TO THE PEOPLE OF THE STATE

OF NEW YORK,

ON THE SUBJECT OF THE PROPOSED FEDERAL CONSTITUTION,

BY THE

Hon. JOHN JAY,

MINISTER FOR FOREIGN AFFAIRS TO THE UNITED STATES

IN CONGRESS ASSEMBLED.

[1788.]

[EXTRACTS.] Friends AND Fellow-Citizens : The Convention concurred in opinion with the people, that a national government, competent to every national object, was indispensably necessary; and it was as plain to them, as it now is to all America, that the present Confederation does not provide for such a government. These points being agreed, they proceeded to consider bow and in what manner such a government could be formed, as, on the one hand, should be sufficiently energetic to raise us from our prostrate and distressed situation, and, on the other, be perfectly consistent with the liberties of the people of every state. Like men to whom the experience of other ages and countries had taught wisdom, they not only determined that it should be erected by, and depend on, the

people, but, remembering the many instances in which governments vestes solely in one man, or one body of men, had degenerated into tyrannies, they judged it most prudent that the three great branches of power should be committed to different 'hands, and therefore that the executive should be separated from the legislative, and the judicial from both. :· Thus far the propriety of their work is easily seen and understood, and therefore is thus far almost universally approved; for no one man or thing under the sun ever yet pleased every body.

The next question was, what particular powers should be given to these three branches. Here the different views and interests of the different states, as well as the different abstract opinions of their members on such points, interposed many difficulties. Here the business became complicated, and presented a wide field for investigation too wide for every eye to take a quick and comprehensive view of it.

It is said that “ in a multitude of counsellors there is safety," because, in the first place, there is greater security for probity; and in the next, if every member cast in only his mite of information and argument, their joint stock of both will thereby become greater than the stock possessed by any one single man out of doors. Gentlemen out of doors, therefore, should not be hasty in condemning a system which probably rests on more good reasons than they are aware of, especially when formed under such advantages, and recommended by so many men of distinguished worth and abilities.

The difficulties before mentioned occupied the Convention a long time; and it was not without mutual concessions that they were at last surmounted. These concessions serve to explain to us the reason why some parts of the system please in some states which displease in others, and why many of the objections which have been made to it are so contradictory and inconsistent with one another. It does great credit to the temper and talents of the Convention, that they were able so to reconcile the different views and interests of the different states, and the clashing opinions of their members, as to unite with such singular and almost perfect unanimity in any plan whatever, on a subject so intricate and perplexed. It shows that it must have been thoroughly discussed and understood; and probably, if the community at large had the same lights and reasons before them, they would, if equally candid and uninfluenced, be equally unanimous.

It would be arduous, and indeed impossible, to comprise within the limits of this address a full discussion of every part of the plan. Such a task would require a volume; and few men have leisure or inclination to read volumes on any subject. The objections made to it are almost without number, and many of them without reason. Some of them are real and honest, and others merely ostensible. There are friends to union and a national government who have serious doubts, who wish to be informed, and to be convinced ; and there are others, who, neither wishing for union nor any national government at all, will oppose and object to any plan that can be contrived.

We are told, among other strange things, that the liberty of the press is left insecure by the proposed Constitution; and yet that Constitution says neither more nor less about it than the Constitution of the state of New York does. We are told that it deprives us of trial by jury; whereas the fact is, that it expressly secures it in certain cases, and takes it away in none. It is absurd to construe the silence of this, or of our own Constitution, relaVOL. I.

63

tive to a great number of our rights, into a total extinction of them. Silence and blank paper neither grant nor take away any thing. Complaints are also made that the proposed Constitution is not accompanied by a bill of rights; and yet they who make these complaints know, and are content, that no bill of rights accompanied the Constitution of this state. In days and countries where monarchs and their subjects were frequently disputing about prerogative and privileges, the latter then found it necessary, as it were, to run out the line between them, and oblige the former to admit, by solemn acts, called bills of rights, that certain enumerated rights belonged to the people, and were not comprehended in the royal prerogative. But, thank God, we have no such disputes; we have no monarchs to contend with, or demand admissions from. The proposed government is to be the government of the people: all its officers are to be their officers, and to exercise no rights but such as the people commit to them. The Constitution only serves to point out that part of the people's business, which they think proper by it to refer to the management of the persons therein designated : those persons are to receive that business to manage, not for themselves, and as their own, but as agents and overseers for the people, to whom they are constantly responsible, and by whom only they are to be appointed.

But the design of this address is not to investigate the merits of the plan, nor of the objections made to it. They who seriously contemplate the present state of our affairs, will be convinced that other considerations, of at least equal importance, demand their attention. Let it be admitted that this plan, like every thing else devised by man, has its imperfections. That it does not please every body, is certain; and there is little reason to expect one that will. It is a question of great moment to you, whether the probability of our being able seasonably to obtain a better, is such as to render it prudent and advisable to reject this, and run the risk. Candidly to consider this question, is the design of this address.

As the importance of this question must be obvious to every man, whatever his private opinions respecting it may be, it becomes us all to treat it in that calm and temperate manner which a subject so deeply interesting to the future welfare of our country, and prosperity, requires. Let us, therefore, as much as possible, repress and compose that irritation in our minds which too warm disputes about it may have excited. Let us endeavor to forget that this or that man is on this or that side; and that we ourselves, perhaps without sufficient reflection, have classed ourself with one or the other party. Let us remember that this is not to be regarded as a matter that only touches our local parties, but as one so great, so general, and so extensive, in its future consequence to America, that, for our deciding upon it according to the best of our unbiased judgment, we must be highly responsible both here and hereafter.

The question now before us naturally leads to three inquiries : 1. Whether it is probable that a better plan can be obtained. 2. Whether, if attainable, it is likely to be in season.

3. What would be our situation if, after rejecting this, all our efforts to obtain a better should prove fruitless.

The men who formed this plan are Americans, who had long deserved and enjoyed our confidence, and who are as much interested in having a good government as any of us are or can be. They were appointed to that business at a time when the states had become very sensible of the derangement of our national affairs, and of the impossibility of retrieving

them under the existing Confederation. Although well persuaded that nothing but a good national government could oppose and divert the tide of evils that was flowing in upon us, yet those gentlemen met in Convention with minds perfectly unprejudiced in favor of any particular plan. The minds of their constituents were at that time equally cool and dispassionate. All agreed in the necessity of doing something; but no one ventured to say decidedly what precisely ought to be done. Opinions were then fluctuating and unfixed; and whatever might have been the wishes of a few individuals, yet while the Convention deliberated, the people remained in silent suspense. Neither wedded to favorite systems of their own, nor influenced by popular ones abroad, the members were more desirous to receive light from, than to impress their private sentiments on, one another.

These circumstances naturally opened the door to that spirit of candor, of calm inquiry, of mutual accommodation, and mutual respect, which entered into the Convention with them, and regulated their debates and proceedings.

The impossibility of agreeing upon any plan, that would exactly quadrate with the local policy and objects of every state, soon became evident; and they wisely thought it better mutually to coincide and accommodate, and in that way to fashion their system as much as possible by the circumstances and wishes of the different states, than, by pertinaciously adhering each to his own ideas, oblige the Convention to rise without do ing any thing. They were sensible that obstacles, arising from local circumstances, would not cease while those circumstances continued to exist; and, so far as those circumstances depended on differences of climate, productions, and commerce, that no change was to be expected. They were likewise sensible that, on a subject so comprehensive, and involving such a variety of points and questions, the most able, the most candid, and the most honest men will differ in opinion. The same proposition seldom strikes many minds exactly in the same point of light. Different habits of thinking, different degrees and modes of education, different prejudices and opinions, early formed and long entertained, conspire, with a multitude of other circumstances, to produce among men a diversity and contrariety of opinions on questions of difficulty. Liberality, therefore, as well as prudence, induced them to treat each other's opinions with tenderness; to argue without asperity; an to endeavor to convince the judgment, without hurting the feelings, of each other. Although many weeks were passed in these discussions, some points remained on which a unison of opinions could not be effected. Here, again, that same happy disposition to unite and conciliate induced them to meet each other; and enabled them, by mutual concessions, finally to complete and agree to the plan they have recommended, and that, too, with a de gree of unanimity which, considering the variety of discordant views and ideas they had to reconcile, is really astonishing.

They tell us, very honestly, that this plan is the result of accommoda tion. They do not hold it up as the best of all possible ones, but only as the best which they could unite in and agree to. If such men, appointed and meeting under such auspicious circumstances, and so sincerely disposed to conciliation, could go no farther in their endeavors to please ev ery state and every body, what reason have we, at present, to expect any system that would give more general satisfaction ?

Suppose this plan to be rejected; what measures would you propose

for obtaining a better? Some will answer, “Let us appoint another convention; and, as every thing has been said and written that can well be said and written on the subject, they will be better informed than the former one was, and consequently be better able to make and agree upon a more eligible one.”

This reasoning is fair, and, as far as it goes, has weight; but it nevertheless takes one thing for granted which appears very doubtful; for, although the new convention might have more information, and perhaps equal abilities, yet it does not from thence follow that they would be equally disposed to agree. The contrary of this position is most probable. You must have observed that the same temper and equanimity which prevailed among the people on former occasions, no longer exist. We have unhappily become divided into parties; and this important subject has been handled with such indiscreet and offensive acrimony, and with so many little, unhandsome artifices and misrepresentations, that pernicious heats and animosities have been kindled, and spread their flames far and wide among us.

When, therefore, it becomes a question who shall be deputed to the new convention, we cannot Aatter ourselves that the talents and integrity of the candidates will determine who shall be elected. Federal electors will vote for federal deputies, and anti-federal electors for anti-federal ones. Nor will either party prefer the most moderate of their adherents; for, as the most stanch and active partisans will be the most popular, so the men most willing and able to carry points, to oppose and divide, and embarrass their opponents, will be chosen. A convention formed at such a season, and of such men, would be but too exact an epitome of the great body that named them. The same party views, the same propensity to opposition, the same distrusts and jealousies, and the same unaccommodating spirit, which prevail without, would be concentred and ferment with still greater violence within. Each deputy would recollect who sent him, and why he was sent, and be too apt to consider himself bound in honor to contend and act vigorously under the standard of his party, and not hazard their displeasure by preferring compromise to victory. As vice does not sow the seed of virtue, so neither does passion cultivate the fruits of reason. Suspicions and resentments create no disposition to conciliate; nor do they infuse a desire of making partial and personal objects bend to general union and the common good. 'The utmost efforts of that excellent disposition were necessary to enable the late Convention to perform their task; and although contrary causes sometimes operate similar effects, yet to expect that discord and animosity should produce the fruits of confidence and agreement, is to expect grapes from thorns, and figs from thistles.”

The states of Georgia, Delaware, Jersey, and Connecticut, have adopted the present plan with unexampled unanimity. They are content with it as it is; and consequently their deputies, being apprized of the sentiments of their constituents, will be little inclined to make alterations, and cannot be otherwise than averse to changes, which they have no reason to think would be agreeable to their people. Some other states, though less unanimous, have nevertheless adopted it by very respectable majorities — and for reasons so evidently cogent, that even the minority in one of them have nobly pledged themselves for its promotion and support. From these circumstances, the new convention would derive and experience difficulties unknown to the former. Nor are these the only additional difficulties they would have to encounter. Few are ignorant that there

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