The secondary unit would be the county or the city.  Here the legislative body would consist of the presiding officers of the township or ward governments.  The sheriff of a county or the mayor of a city would be chosen by these legislative bodies from their own number and should hold office for a term of several years, while the local governments, and therefore the legislative bodies of the county or the city, would be chosen annually.  The chief executive of a county or city would appoint all heads of departments who would form his advisory council, and he would also frame and submit annually both a fiscal and a legislative budget.

The tertiary unit is the state, which is a federation of the counties and cities forming some one of the historic divisions of the United States.  The legislature would as now be composed of two chambers, one made up of representatives of the primary units, holding office for a brief term, and a second representing the secondary units and chosen by their governing bodies for a long term.  The logic of a bi-cameral system demands that the lower house should represent the changing will of the people, the upper, in so far as possible, its cumulative wisdom and the continuity of tradition, while, as already stated, the whole principle is vitiated if both houses are chosen by the same electorate.  The chief executive should be chosen by the legislative chambers in joint session, from a panel made up of their own membership and the heads of the county and city governments.  He should hold office for a long term, preferably for an indeterminate period contingent on “good behaviour.”  In this case his cabinet, or council of the heads of departments, would of course be responsible to the legislature and would resign on a formal vote of censure or “lack of confidence.”  The Governor would have the same power of appointment, and the same authority to present fiscal and legislative budgets as, already specified in the case of a mayor of a city.  No “commissions,” unpaid or otherwise, should be permitted, all the administrative functions of government being performed by the various departments and their subordinate bureaux.

The national government is the final social and political unit, though it is conceivable that with a territory and population as great and diversified as that of the United States, and bearing in mind the great discrepancy in size between the states, something might be gained by the institution of a system of provinces, some five or six in all, made up of states grouped in accordance with their general community of interests, as for example, all New England, New York, Pennsylvania, New Jersey and Delaware; the states of the old Confederacy, those of the Pacific Coast, and so on.  The point need not be pressed here, but there are considerations in its favour.  In any case the nation as a whole is the final federal unit.  Here the lower legislative house would consist of not more than four hundred