The convention of nearly six hundred delegates gave evidence of a genuine, popular movement for constitutional changes. Though it was composed of members of only one party, its discussions were of general interest, and were upon a high level of intelligence and public spirit. The convention was divided between dissolution and federal union. Federation first got the ear of the meeting. Free access to the sea by the St. Lawrence, free trade between Upper and Lower Canada, were urged as reasons for continuing the union. Oliver Mowat made a closely reasoned speech on the same side. Representation by population alone would not be accepted by Lower Canada. Dissolution was impracticable and could not, at best, be obtained without long agitation. Federation would give all the advantages of dissolution without its difficulties.
Mowat's speech was received with much favour, and the current had set strongly for federation when George Sheppard arose as the chief advocate of dissolution. Sheppard had been an editorial writer on the _Colonist_, had been attracted by Brown and his policy and had joined the staff of the _Globe_. His main argument was that the central government under federation would be a costly and elaborate affair, and would ultimately overshadow the governments of the provinces. There would be a central parliament, a viceroy with all the expense of a court. "A federal government without federal dignity would be all moonshine." There was an inherent tendency in central bodies to acquire increased power. In the United States a federal party had advocated a strong central government, and excuses were always being sought to add to its glory and influence. On the other side was a democratic party, championing State rights. "In Canada, too, we may expect to see federation followed by the rise of two parties, one fighting for a strong central government, the other, like Mr. Brown, contending for State rights, local control, and the limited authority of the central power." One of the arguments for federation was that it provided for bringing in the North-West Territory. That implied an expensive federal government for the purpose of organizing the new territory, building its roads, etc. "Is this federation," he asked, "proposed as a step towards nationality? If so, I am with you. Federation implies nationality. For colonial purposes only it would be a needless incumbrance."