726 T. C. CHAMBERLIN 
It will be necessary to define with care what constitutes znter- 
national commerce in distinction from domestic commerce. The 
essential point will be to keep from the record on which represen- 
tation and voting is based all commerce that is specially stimulated 
by financial considerations which favor one nation over others, as 
by a differential tariff or its equivalent. A tariff that affects all 
the nations of the Confederation alike is entirely consistent with the 
equities of the scheme, so far as the scheme is concerned—it is not 
a free-tariff scheme—but a differential tariff that tends to direct com- 
merce toward one nation rather than another disturbs the parity 
of the system. All shipping as well as all commodities so affected 
should be classed as domestic or preferential exchange and excluded 
from the record on which representation and voting power are based. 
The average of a period of years is likely to be a fairer basis 
for determining representation and voting power than the last 
annual record; perhaps the average of a five-year period might be 
best, the group of years to be changed annually by dropping out 
the first of the five years when a new year is added. 
Subject to the qualifications specified, it should be the privilege 
of each nation to elect or to appoint its delegates to the Congress 
in any way it may choose, and where entitled to several delegates 
to determine whether they shall vote as a unit or otherwise. 
It is proposed that the delegates so chosen from the several 
nations shall constitute the Congress of Delegates, and that this 
shall organize into two chambers on the basis of the particular 
phase of international commerce they represent. 
The Congress of Delegates should have power— 
(1) To enact general laws for the regulation and conduct of the 
affairs of the Confederation. 
(2) To fix the terms of office of the directors chosen by the 
national delegates. ‘These terms should be sufficiently long to 
secure the results of experience. 
(3) To choose certain general officers to be determined in the 
matured scheme as adopted. 
The directorate might well also consist of two bodies, one 
appointed by the Chamber of Commerce, whose functions should 
relate to the shipping interests, the other appointed by the Chamber 
