ided for or perhaps even
contemplated by the framers of the Constitution, is nevertheless the
logical outcome of their plan to throttle the power of the majority. But
although in harmony with the general purpose and spirit of the
Constitution, it is a flagrant violation of the basic principle of
popular government.[146]

This tendency may be still more clearly seen in the growth of the
committee system by which the division of power and its consequence,
political irresponsibility, have been carried much farther than the
Constitution contemplated, especially in the organization of the House,
of Representatives. No standing committees were provided for by the
Constitution and few were established by the House during the early
years of its existence. The system once introduced, however, has
gradually developed until the House now has more than fifty-five of
these committees.

Every legislative proposal must under the rules after its second reading
be referred to the committee having jurisdiction over that particular
branch of legislation. Theoretically, any member has a right to
introduce any bill whatever. But as it must be referred to the proper
committee and be reported by it to the House before the latter can
discuss and adopt or reject it, it is evident that the right to initiate
legislation has in effect been taken from the individual members and
vested in the various standing committees. Under this method of
procedure no proposed legislation can be enacted by the House without
the consent of the committee having that particular branch of
legislation in charge. The fact that a measure must be referred to a
committee does not imply that that committee is obliged to report it
back to the House. This the committee will, of course, do if the
proposed bill is one which it wishes to have passed. But if it views the
proposed legislation with disfavor, it may revise it so as to make it
conform to its own wishes, or it may report it so late in the session as
to prevent its consideration by the House, or it may neglect to report
it altogether. This virtually gives a small body of men constituting a
committee a veto on every legislative proposal. The extent to which this
system diminishes the responsibility of the House can not be fully
appreciated without bearing in mind the manner of appointment and
composition of the committees. The Constitution provides that "the House
of Representatives shall choose their speaker and oth