The verb constitute has 4 senses (first 2 from tagged texts)
1. (32) constitute, represent, make up, comprise, be -- (form or compose; "This money is my only income"; "The stone wall was the backdrop for the performance"; "These constitute my entire belonging"; "The children made up the chorus"; "This sum represents my entire income for a year"; "These few men comprise his entire army")
2. (1) appoint, name, nominate, constitute -- (create and charge with a task or function; "nominate a committee")
3. form, constitute, make -- (to compose or represent:"This wall forms the background of the stage setting"; "The branches made a roof"; "This makes a fine introduction")
4. establish, found, plant, constitute, institute -- (set up or lay the groundwork for; "establish a new department")