But this executory contract must depend for its execution upon the supreme power vested in Congress to lay and collect duties. It is therefore a contract not completed. but inchoate. and can only be completed and binding when Congress shall by legislation consent thereto and lay duties in accordance with the executory contract or treaty. The same reasoning may apply to all of the great powers vested in Congress. such as to borrow money. regulate commerce. coin money. raise armies and provide a navy. make laws as to naturalization. bankruptcies. and exercise exclusive legislation in the District of Columbia and Territories of the country. If these are sought by the treaty to be regulated by the President and Senate. it can be done only when Congress vested with these great powers shall give its constitutional consent. "Mr. Madison. in the reports of the convention which he has left us. used an expression which is significant upon this point.
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naturalization