thus dependent partly on number and partly on status. The Fourteenth Amendment does away with the limitation as to status and bases the apportionment on numbers merely, excluding Indians and persons without cause deprived of their right to vote. The Constitution provisionally apportioned the representatives according to the best information obtainable, assigning to each State a specified number and provided for subsequent periodical enumerations, establishing a minimum of 30,000 persons to one representative. In 1792 an apportionment based on the census of 1790, assigned one hundred and five members, one to every 33,000 inhabitants, all fractions being disregarded, and in 1802 an apportionment on the same terms was made based on the census of 1800, the total of members being one hundred and forty-one. The census of 1810 caused in 1811 one hundred and eighty-one members to be distributed among the States, one member being assigned to 35,000 persons. The census of 1820 increased the number of members to two hundred and twelve, and the number of persons to whom one representative was assigned to 40,000. The census of 1830 resulted in a law giving one member to every 47,000 people, a total of two hundred and forty members. In all these apportionments fractions had been disregarded, but the discussion following the census of 1840 ended in the adoption of the principle of representation to fractions larger than onehalf. In this debate a proposition to force States to elect by districts was voted down. By the act of 1842 there were two hundred and twenty-three members, being one in 70,680 persons; six members being assigned to States having fractions larger than one-half. In 1850 S. F. Vinten, of Ohio, amended the bill providing for the taking of the census, so as to leave the apportionment on the following basis in the hands of the Secretary of the Interior. This law came to be known as the Vinton Bill. As subsequently passed it provided for two hundred and thirty-three members." The total population of the country was to be divided by two hundred and thirty-three, thus obtaining the number of

constituents of each member, then by dividing the total population of each State by the basis thus obtained, the number of representatives assigned to each State for full constituencies would be obtained; the number of members remaining was then to be apportioned among the fractions until exhausted. One member was subsequently added to California. The ratio was one to 93,420. The principle of the Vinton Bill has since prevailed in all of the apportionments. Based on the census of 1860, two hundred and forty-one members were apportioned, being one to every 126,840 persons. The thirteenth, fourteenth and fifteenth amendments abolished the slaves as a basis for representation, but the provision in the fourteenth amendment ordering a reduction in the number on which the apportionment is to be based, in cases of causeless deprivation of persons of the right to vote, has been deemed impracticable and is now disregarded. In 1872, four members were assigned to States not having the full number required for one representative, two hundred and seventy-nine were apportioned among the remaining States on the principle of the Vinton Bill, and nine additional were subsequently added to certain States, making a total of two hundred and ninety-two, or one in 131,425 persons. The latest apportionment took effect March 4, 1883. By it three hundred and twenty-five members sit in Congress, being one to every 151,912 persons.

Appropriations.-Article 1, section 7, clause 1 of the Constitution provides that "All bills for raising revenue shall originate in the House of Representatives;" a similar privilege has been claimed by the House in the case of appropriations of public money, but in this case the claim has not been insisted on. Previous to 1865 the appropriation bills were in the House considered by the Committee of Ways and Means, but in that year the Committee on Appropriations was formed. By a rule of the House and Senate, appropriation bills must include only items authorized by existing laws, and they cannot contain provisions changing existing laws. But this rule is frequently disregarded. These bills

must be reported to the Committee of the Whole, and may be reported at any time, taking precedence of any other measures. This rule puts vast power into the hands of the chairman of the committee, and of late years this power has been used to choke discussion on the subject of the tariff, by withholding the report of the appropriation bills until the end of the session and then introducing them at a time when the most urgent duties of Congress having been performed, that topic is most likely to come up for discussion. In the House the yeas and nays on the passage of these bills must be recorded. But bills are frequently passed under a suspension of this rule. In the Senate this is not necessary. The Appropriation Committee in that body was organized in 1867, the Finance Committee having previously had that matter in charge. The appropriation bills are made up from estimates furnished by the heads of the executive departments; these are usually much reduced in the House, and these estimates are again usually raised by the Senate (which body has less political capital to make out of a claim of economy); a compromise between the two usually results in appropriations considerably lower than the amount asked for by the department officers. This necessitates the passage, at the beginning of every session, of a bill to supply the deficiency of the previous appropriations; this bill is known as the Deficiency Bill. See pp. 44 and 45 for the annual appropriations made by the United States Congress for the expenses of the government for each fiscal year ending June 30, from 1875, to 1888, inclusive.

Besides these appropriations there are "permanent annual appropriations," or money expended by the treasury by virtue of laws whose operation involves the expenditure without a specific appropriation renewed each year, as interest on the public debt. For the expenditures of the government, see Expenditures and Receipts of the United States.

Arbitration, International.-The earliest method of settling international disputes was by war.

This

2,108,041 1,853,805 4,134,692 1,425,091 2,226,390 2,995,124 $155,017,758 $147,714,941 $124,122,011 $88,356,983 $172,016,809 $162,404,648

1882.

1883.

1884.

1885.

1886.

1887.

1888.

11,451,300 18,988,875 None.

14,948,300

None.

14 464,900

None.

Totals.

$179,579,000 $251,428,117 $187,911,566 $137,451,398 $170,608,114 $209,659,383 $193,035,861 13

Previous to 1881 appropriations for the Agricultural Department were included in the legislative, executive and judicial appropriations. Previous to 1881 appropriations for the District of Columbia were included in the sundry civil expenses appropriations.