Roger Sherman (1721–1793), a congressman from Connecticut, argued in a special congressional committee appointed on July 21, 1789, that any amendments should be appended to the Constitution. On August 19, 1789, the House of Representatives finally adopted Shermans argument that to insert them into the text would be too confusing and voted instead to add the amendments by way of a supplement.
This list of proposed amendments in Shermans writing is probably a draft of a report by a committee on which he served. It differs markedly from the amendments finally proposed and sent to the states. As such, it provides valuable insights into the creation of the Bill of Rights.