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CONSTITUTION OF THE U. STATES.
[BOOK III.
to aid their advancement, or gratify their ambition. But the solid judgment of a senate may stay the evil, if its own duration of power exceeds that of the other branches of the government, or if it combines the joint durability of both. In point of fact, the senate has this desirable limit. It combines the period of office of the executive with that of the members of the house; while at the same time, from its own biennial changes, (as we shall presently see,) it is silently subjected to the deliberate voice of the states.
§ 713. In the next place, mutability in the public councils, arising from a rapid succession of new members, is found by experience to work, even in domestic concerns, serious mischiefs. It is a known fact in the history of the states, that every new election changes nearly or quite one half of its representatives;[1] and in the national government changes less frequent, or less numerous can scarcely be expected. From this change of men, there must unavoidably arise a change of opinions; and with this change of opinions a correspondent change of measures. Now experience demonstrates, that a continual change, even of good measures, is inconsistent with every rule of prudence and every prospect of success.[2] In all human affairs, time is required to consolidate the elements of the best concerted measures, and to adjust the little interferences, which are incident to all legislation. Perpetual changes in public institutions not only occasion intolerable controversies, and sacrifices of private interests; but check the growth of that steady industry and enterprise, which, by wise forecast, lay up the means of future prosperity. Besides; the instability of public councils gives an unrea-
