On May 29, 1787, Virginia delegate Edmund Randolph proposed what became known as "The Virginia Plan." Written primarily by fellow Virginian James Madison, the plan traced the broad outlines of what would become the U.S. Constitution: a national government consisting of three branches with checks and balances to prevent the abuse of power. In its amended form, this page of Madison's plan shows his ideas for a legislature. It describes 2 houses: one with members elected by the people for 3-year terms and the other composed of older leaders elected by the state legislatures for 7-year terms. Both would use population as a basis for dividing seats among the states.

The Virginia Plan proposed instead a legislative branch consisting of two chambers (bicameral legislature), with the dual principles of rotation in office and recall applied to the lower house of the national legislature.[5] Each of the states would be represented in proportion to their “Quotas of contribution, or to the number of free inhabitants.”[6] States with a large population, like Virginia (which was the most populous state at the time), would thus have more representatives than smaller states. Large states supported this plan, and smaller states, which feared losing substantial power in the national government, generally opposed it, preferring an alternative put forward by the New Jersey delegation on June 15. The New Jersey Plan proposed a single-chamber legislature in which each state, regardless of size, would have one vote, as under the Articles of Confederation. In the end, the convention settled on the Connecticut Compromise, creating a House of Representatives apportioned by population and a Senate in which each state is equally