e obligatory upon any. The departure from this condition, which
actually occurred, will presently be noticed.

[Footnote 29: Dr. Worcester.]

[Footnote 30: This definition is very good as far as it goes, but "the
form of government" is a phrase which falls short of expressing all that
should be comprehended. Perhaps it would be more accurate to say, "which
constitute the form, _define the powers, and prescribe the functions_ of
government," etc. The words in italics would make the definition more
complete.]

CHAPTER II.

The Convention of 1787.--Diversity of Opinion.--Luther Martin's
Account of the Three Parties.--The Question of
Representation.--Compromise effected.--Mr. Randolph's
Resolutions.--The Word "National" condemned.--Plan of Government
framed.--Difficulty with Regard to Ratification, and its
Solution.--Provision for Secession from the Union.--Views of Mr.
Gerry and Mr. Madison.--False Interpretations.--Close of the
Convention.

When the Convention met in Philadelphia, in May, 1787, it soon became
evident that the work before it would take a wider range and involve
more radical changes in the "Federal Constitution" than had at first
been contemplated. Under the Articles of Confederation the General
Government was obliged to rely upon the governments of the several
States for the execution of its enactments. Except its own officers and
employees, and in time of war the Federal army and navy, it could
exercise no control upon individual citizens. With regard to the States,
no compulsory or coercive measures could be employed to enforce its
authority, in case of opposition or indifference to its exercise. This
last was a feature of the Confederation which it was not desirable nor
possible to change, and no objection was made to it; but it was
generally admitted that some machinery should be devised to enable the
General Government to exercise its legitimate functions by means of a
mandatory authority operating directly upon the individual citizens
within the limits of its constitutional powers. The necessity for such
provision was undisputed.

Beyond the common ground of a recognition of this necessity there was a
wide diversity of opinion among the members of the Convention. Luther
Martin, a delegate from Maryland, in an account of its proceedings,
afterward given to the Legislature of that State, classifies these
differences as constituting three parties in the