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                    <text>Supplement to Northwestern University Bulletin, Vol. XV,
October 2, 1914, Number 5 .

AN ACCOUNT OF A COURSE IN

Problems of Contemporary
Legislation
The Subject
The subjects of inquiry and discussion are legal problems.
This is worth emphasizing, because it must not be supposed
that the course is intended or allowed to introduce into the
law school curriculum any research in the economic, social, or
political field as such. The materials concern the American
lawyer's profession as he finds it today and in prospect. And
they concern topics that the student has already met in the
usual courses, in their judicial and not in their legislative aspect.
The list of topics in the printed List of Topics and References sufficiently shows this feature. Each of them involves
one or more well-known rules or body of rules already familiar as part of the present law. Its aptness to present conditions has been questioned. The problem is, not merely to
ascertain the validity of the criticism, but to determine what
specific changes of rule would be needed to meet any criticism
that may be found valid.

l-

Thus, the work of the course involves a review of the existing rule or rules, a precision of its defects, and a shaping of its
changes. The work involves materials which are as distinctly
legal ( in the sense familiar to American lawyers) as the materials of any lecture course. And it constantly reveals to the
student how merely partial has been his grasp of the rule while
he was studying it in only its static and not its dynamic aspect.
The topics vary, of course, in the extent to which existing
decisions and statutes form the main part of the discussion.
But in each of them the problem is primarily a lawyer's problem, e. g., such topics as the Income Tax, the Minimum Wage,
and the like, are strictly excluded.
1

�The Object
To put into convincing words the multiple object of the
course is not easy. But it must be explained at the outset what
it is not . . It is not a "seminar" for the purpose of conveying
information on the pros and cons of any one of the topics. Some
colleges probably have such courses. They should not be mistaken in purpose for this one.
I. A main purpose is to open the mind of the young lawyer
to the thought that dozens of important legal rules have a legislative aspect, which he today ought to reckon with. The course
aims to make him sense this. Having been kept strictly down
( in the usual curriculum) to an analysis of the decisions, their
history and their logical connections, iff the effort to ascertain
merely what the law is (not what it ought to be), and to argue
in lawyerlike fashion towards the logical result of prior precedents applied to new cases, he tends inevitably to think of law
exclusively in this aspect. And he must now be initiated into
the other aspect.
How necessary is to be that other aspect, for the skilful
leadership of the profession in the coming generation, need not
be urged here. Those teachers who do not feel it keenly will
take no interest in this course. Those who do will feel it invaluable for the training of the coming generation of leaders
at the baL
This object then is not to convey information on important
topics. It is to introduce the advanced student ( i. e. at a stage
of his legal education when it is safe to do so) to a new way
of thinking about law.
To attain genuinely to that understanding, the natural and
sufficient method is for him to spend some time in thinking over
and discussing with others a few such topics. After a short
season of such experience, he becomes inoculated. He has
sensed-and will thereafter in his professional career not lose
this sensing- the legislative possibilities of his law. He is
groomed to take readily his part-if Destiny has any for himin the legislative activities of the near future. The main object
of the course is accomplished. That object may be somewhat
intangible now; but it is of profound consequence to the
profession.
2.
A secondary object is to familiarize the young man with
the sources of research for legislative .discussion of the existing
law. The 'best of students are often naively unfamiliar with
them. To illustrate: A member of the class once chose for
his topic "The Abolition of the Death Penalty." He had found
plenty of material; . had marshalled the statutes; had sum-

�marized the statistics, etc. But at a prior consultation it appeared
that in Kansas ( let us say), where the penalty had been abolished
and then restored, he had found nothing about the interim
experience. It was suggested that he had better look into the
governor's messages for that period; and this simple· resource
had never occurred to him.
The helplessness of the ordinary educated person in turning
to seek for the sources of facts and arguments on a legal problem
is greater than might be supposed. To initiate the embryo
lawyer into an acquaintance with the extent and variety of
reliable sources for this purpose is a real service to the profession.
3. Another secondary object is to reveal to the young lawyer
the importance of skill in making a concise informal presentation
of his cherished convictions to a group who must be persuaded.
In many and many an emergency of a lawyer's career these
two features-brevity and informality-are more vital than we
commonly reflect. Whether it be a board of directors, a city
council committee, a citizens' meeting, or a client's consultatioq-these conditions sternly limit the advocate full of his subject. He ought to have an illuminating experience before the
reality is upon him.
In this course, the part1c1pants, who heckle the chairman,
have an opportunity to observe how rare is the required talent,
and how needful its cultivation. One of the features often
gratefully spoken of is this experience of the difficulty of making all one's points effectively for a large subject in a limited
time and subject to interruption.

!

4. Incidentally, no doubt, a benefit of the course is a rather
broad scope of information on the actual problems of contemporary legislation. But if the course were conducted primarily with this view, it would easily degenerate into a "seminar," in which a "paper" is read by one, and the professor
then criticizes, while the other members sit by in respectful a~d
industrious silence. And this is not what the course is intended
to be.

The Methods
How, then, is the course conducted?
There are a good many details, as developed "in the sevenyears' tradition. Perhaps no one of them is essential. But they
all fit together. The general spirit can best be told by saying
that the class pretends that it is a legislative committee, and the
chairman for the day is laying before them a proposal for their
approval.
3

�Of course, the idea of a legislative committee is not strictly
carried out. There is no legislative machinery, not the least; the
chairman is each member of the class in turn and the professor sits along with the rest like an ordinary member; there
is no draft of a bill; and there is merely a straw vote at the
end, to satisfy curiosity as to the persuasive effect of the chairman's presentation.
And now a little more in detail.
I.
Schedule of Meetings. The class meets once a week,
for a session of an hour and three-quarters. The meetings
begin in the second term, or in December, or in October (if
enough members have prepared, as chairmen, beforehand in
summer time). The List of Topics having been posted long
before, each member selects his own; and at an early preliminary meeting a schedule of dates is made up, by lot or by
agreement.
2. Preparation.
Each member finds in the List of References enough material to give him an ample start in the sources:
Industrious ones find more or less additional material. The
sources are studied; the instructor is consulted as much or as
little as desired, but only in regard to finding materials. Notes
are prepared as fully as each one cares.
One week before each meeting, the -chairman for that meeting distributes to each member a typewritten summary of his
( Samples of such summaries
expected order of discourse.
This summary
are printed at the end of this leaflet.)
must follow one rule only, viz., its details must be grouped
under three heads :
I. What are the alleged abuses, shortcomings, defects, of
the present law?
II. What are the remedies anywhere proposed?
III. What is the remedy favored by the chairman'?
U.;ually some brief history of the subject prefaces the first topic.
3. Meetings. The member whose topic is scheduled for
the day takes the chair. Other members, including the professor, sit around a long table. Entire informality prevailsjust as in any committee meeting of friends.
The chairman may have full notes prepared, besides his Summary, but he must not read anything-except an occasional
quotation from an authority. His exposition is strictly oral.
He allots its topics so that he would take only thirty or
forty minutes, if uninterrupted. But he has never gone- far
before a question is asked; then comes another, and others;
and his forty minutes invariably expand to one hour and forty
4

�before he reaches his &lt;inding, and often .he does not reach it.
Perhaps a statement of law is doubted, perhaps a statement of
fact. Perhaps an assertion now become elementary to him
seems a mere assumption to one of the others, and so he must
digress to establish his fundamentals. In one way or another he
finds that he must satisfy all sorts of expressed doubts before he
can proceed safely to the next point. And the spirit of the
occasion, emphatically, is that he is an advocate of some thesis,

proposing or opposing a change of law to those w hose assent is
requi1·ed, and hence he must seek to satisfy all doubts, and to

carry his colleagues with him for his measures. Part of his
benefit to be got is this experience of persuading other thinking
members of the profession on a matter of legislation proposed
by him.
The chairman is to control the objectors, and not let the
due progress of his presentation be ·impeded. In this task he is
not always as successful as he might be; but the professor can
occasionally help him.
At the close, the chairman submits his proposal, in concise
fol,'m. Usually, it embodies three or four essential features. If
he feels that one or more, not essential, may endanger his
measure, he may withdraw them. But the vote must be on the
whole proposal, not on each part separately.
After each meeting, the chairman files with the professor a
list of any references which he has found and used additionally
to those on the printed list.
4. Membership. The membership is limited to sixteen; for
there are sixteen weeks in a term, and one meeting a week;
moreover, a larger number would not permit of informal committee spirit. If more than that number are to be allowed, two
classes should be formed.
If the sixteen members are selected from a larger number of
applicants, the choice can be made by priority, by lot, or by
scholarship record.
The same professor attends all meetings. But it would be
worth while for an additional one to attend; the various members of the faculty taking turns. But they should not choose
meetings when a specialty of their own supplies the topic; the
less they know on the special subject, the better members
they are.
Such is the course in Problems of Contemporary Legislation.
No doubt it could be conducted profitably on a plan differing in
details from the above description. The above method, however, has served well enough for carrying out the purposes set
forth at the beginning of these le.aflets.
5

J. H. W.

�EX A M P L'E S OF SU M M AR IE S
April 20, 1910-Topic No. 10
The best method of performing Treaty Obligations by a Federal
Law enforcing L iability for Injuries to A liens by
Local Mobs or Officers.

I. Introduction
I.

The Treaty Making Power.
May states ' block a particular treaty?
May an act of Congress nullify it, or the Supreme
Court declare it void?

2.

Status of the alien under our treatie~.

3. Duties .of the United States to resident aliens.
A-To preYent
criminal violence

Was there negligence in
(a) prevention or ·
( b) prosecution of officers.

B-Prosecution { IBy Federal Government
Several States.
C-Civil Rights
. (Torts)
Individual
D-Redress as
{ States.
to claims

II.

D efects
I.

2.

Usual demands of foreign governments.
(I) Difficulties.
(a) Fede.ml Courts have no common law
jurisdiction in criminal matters.
(b) States are wholly independent of
the federal government in respect
to such jurisdiction, so State cannot
. institute such proceedings:
( 2) Practice of United States.
(a) In similar claims against foreign governments.
( b) In explanation and defense of the
present situation.
There is at present no adequate means of securing
justice.

I

t
1

�(I) Suits against individuals.
(2) Liability of Municipalities and Counties by
legislation.
( 3) Suits against the State ( by agency)
(4) Diplomacy; foreign nation alone can take
the matter up.

lll. Remedy
Give the central government the whole right and duty
of securing justice for resident a_liens. This may be
done by Congress conferring upon the Federal courts
jurisdiction in this class of cases.

January 14, 1914-Topic No. 13
The Best Method of Preventing Migratory Divorce and R emedying the A buses R esulting from a Diversity
of State Laws.
I.

A buses resulting from our present laws.

(I) Migratory divorce.
(a) Disrespect for law.
X-Scandal.
Y-Makes a different law for people of
wealth.
Z-Evasion of law.
(b) Prevents a State from regulating the matrimonial relationship of its citizens.
( 2) Absence_of any sound jurisdictional basis.
(a) Doctrine of Haddock v. Haddock (201 U.
562).
3. Variations in the law and resulting confusion.
4. No central registry.

s.

I~

lI
2.

Remedies proposed
(I) Uniformity of State legislation.
(2) Federal legislation.
(a) Act of Congress without amendment.
(b) Amendment to Constitution.
7

�3.

Federal legislation alone will accomplish results
( 1) Uniformity of State divorce legislation 1s impossible.
(a) History of Uniform divorce legislation.
(b) Conflict of views.
(c) Constantly changing view in regard to divorce.
( 2) Uniform State legislation could not accomplish
results.
(a) Haddock v. Haddock.
(b) Registry:
( 3) Federal legislation may be accomplished under
the present Constitution.
(a) Interstate Commerce Clause.
(b) Taxing power.
(4) If Congress cannot pass a constitutional divorce
act, the Consti't ution can and should be amended.
(a) Publi&lt;l sentiment in favor of eliminating
evils.
(b) Doctrine of State rights is no longer an objection.

February 23, 1910 -Topic No. 12
Should Trial by Jury be allowed by Statute in Constructive
Contempts?

I.
II.

Introduction
Causes of complaint

(A) Equity extended its jurisdiction.
( I ) To restrain criminal acts.
(a) Historical sketch.
(b) On the ground of nuisance causing irreparable injury.
, ( 1) Common law.
( 2) Under statutes enlarging the defini' tion of nuisance.
(c) On the ground that organizations of employees are illegal combinations in restraint of trade.
8

�(I) Common law.
(2) Under Sherman Anti-Trust Act and
other Statutes.
(d) Federal courts assume jurisdiction where
they have appointed receivers.
( e) Reasons for this expansion of jurisdiction,
and the futility of this new relief.
( 2) To restrain persons not parties to the suit and not
personally served.
(B) Results flowing from this extension of equity juris·
diction.
( r) People are deprived of jury trial in cases
which amount to crimes, and instead are
punished summarily.
( ~) Many not parties to the suit are enjoined
· and restrained.
(3) Others are punished for violation of a temporary injunction which is later held to
be without equity.
(4) Equity has been beguiled into giving relief
merely cumulative, the penal laws providing ample punishment.
( 5) Originally, personal rights and private property were protected by equity, now the
public welfare and even political rights
are.

III.

Reinedies proposed

(A) As to punishment for contempt.
(I) Classes of contempts.
(a) Direct contempt in the presence of the court.
( b) Constructive-not in the presence of the
court.
( c) Civil contempts.
( d) Criminal contempts. ·
( 2) History of contempt.
( 3) Legislative regulation. ·
(a) Contempts classified.
( r) Direct-in the presence of the court.
(a) Herein, punishment to remain
as before.
9

�( 2) Indirect-not
court.

m presence of the

(a) Herein, one accused of contempt shall be presented
with a list of witnesses and
upon application be allowed
trial by jury.
(b) Accused shall have right of
appeal and stay of j udgment.
(b) Possible difficulties.
(I) Can the legislature abridge or regulate the exercise of the right to
punish summarily?
(a) As to constitutional courts.
( b) As to other courts.

( 2) Can the executive interfere with his
pardoning power?
(4) Constitutional regulation of contempts.
(a) Obviates the above queries.
(I) Removes the dignity-inspiring power
of courts from tanwering legislatures, by inhibiting legislation.
( 2) May also forbid pardons by executive except under circumstances
which would authorize the suspension of the writ of habeas
corpus.
( 3) Avoids constitutional difficulties.
( B) Definition of "co~spiracy" and regulation of issuance
of injunctions.
(I) Why this remedy too, is necessary; because of,
(a) Reckless issuing of injunctions.
(b) Lax definition of "conspiracy."
(c) Enforcement by gover_nments of public
morals and political rights, through
equity.
( 2) One remedy suggested is that equity retreat to
its normal jurisdiction, while statutes authorizing
suits by the government he repealed.
10

�(a) Only parties to suit to be restrained.
( b) All acts except such as amount to crimes
may be restrained.
( c) Punishment of crimes should be left to
criminal courts.
( d) Objections.
(3) Another remedy is that, by statute, no injunction
or restraining order should issue in cases between
capital and labor, if consummated act would be
punishable as a crime.
(a) Objections:
( r) Possible constitutional difficulty.
( 2) Impracticability.
(3) Class favoritism or special legislation is undesirable.
(4) A third remedy consists of two distinct yet related
topics.
(a) Where inj uni:tions issue to restrain acts
criminal in their nature, jury by trial
should be allowed.
(This is covered by remedy for contempt)
(b) Further, that agreements or combinations
to do or not to do an act in any trade
dispute should not be deemed criminal if
such an act would not be punished as a
crime if done by one.
( r) Herein, also, such agreements shall
not be considered in restraint of
trade.
(2) Nor shall injunctions or restraining
orders issue in relation thereto.

IV.

R emedies r ecommended

(A) As to contempts.
( r) Constitutional enactment ' of suggestions
(A) 3 (a)

in

III

( B) As to "conspiracy" and injunctions.
( r) A statute incorporating the limitation of the .
word "conspiracy" and the issuance of rnJunctions or restraining orders in relation thereto,
as stated in III (B) 4 (b).
1I

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