THE TWO HOUSES OF PARLIAMENT 139

each State, large or small, sends two Senators. Friction between
the two Houses is not uncommon, but this is only an example
of the problems of Federalism. The separate States were not
willing to fuse into a single unitary State; nor was it to their
advantage to remain completely independent. Federation, despite
its inherent difficulties, was the only way in which a great
nation could be created. Switzerland, which is a Federation of
Cantons, some of which have joined in comparatively recent
times, also uses bicameral Government as an instrument of
Federalism. The newest of all Constitutions, that of the U.S.S.R.,
likewise provides for two Chambers, in view of the variety of
languages and ways of life in Soviet territory; the Council of
Nationalities, like the United States Senate, gives representation
to the smaller Republics and Provinces, out of proportion to
their population.

REFORM.

For Great Britain, a practical problem remains. About one-
third of the Bills which come before Parliament are started in
the Lords1; so the mere abolition of that House would thrust
more work on the already over-burdened Commons. Further,
the argument for a revising Chamber, to see that Bills are well
drafted, has not been fully answered. A small Second Chamber
containing men appointed for their experience and competence,
has been suggested. Alternatively, the members of the Second
Chamber could be elected by the Commons, to do .the work
of revision and start those Bills which are not party measures.
The Commons might select some of their own Members, and
add to them persons fitted for the work but less fitted to fight
elections. The Second Chamber would then be of moderate
size and of the same political complexion as the Commons;
all its members would be active and it would be to the interest
of the parties to see that they were competent. The two Chambers
would not be rival authorities but partners, sharing the work
' * See Ch. X.