It should be an experienced body of legal, administrative, and financial experts, comparatively limited in numbers, and selected in a manner to make them solicitous of the interests of the whole state.

They should be elected, consequently, from comparatively large districts, or, if possible, by the electorate of the whole state under some system of cumulative voting.

The work of such a council would not be in any real sense legislative; and its creation would simply constitute a candid recognition of the plain fact that our existing legislatures, either with or without the referendum, no longer perform a responsible legislative function.

It would be tantamount to a scientific organization of the legislative committees, which at the present time exercise an efficient control over the so-called legislative output.

This council would mediate between the governor, who administered the laws, and the people, who enacted them.