While drafting the Constitution, the greatest conflict was over representation in the Legislative branch. Large states such as Virginia, new York and Massachusetts desired one based on population. Small states such as Rhode Island, and New Jersey wanted an equal amount of reps from each state. Small states thought large states would dominate with a large number of reps, while large states said democracy demanded equal representation for each person.

In the end, a bicameral plan was adopted. The House of Representatives was based on population. The Senate had equal for each state. The conflict between large and small states never materialized, either because of the quality of the plan or because of lack of conflict between the goals of the states.