h they did recommend was
never adopted. Notwithstanding the greatness of the exigency, and the
pressure of the national wants, never, during the existence of the
confederation, did all the states unite in assenting to this
recommendation; so unwilling are men possessed of power, to place it
in the hands of others.

[Sidenote: Reform in the organization of the executive departments.]

About the same time a reform was introduced into the administration,
the necessity of which had been long perceived. From a misplaced
prejudice against institutions sanctioned by experience, all the great
executive duties had been devolved either on committees of congress,
or on boards consisting of several members. This unwieldy and
expensive system had maintained itself against all the efforts of
reason and public utility. But the scantiness of the national means at
length prevailed over prejudice, and the several committees and boards
yielded to a secretary for foreign affairs, a superintendent of
finance, a secretary of war, and a secretary of marine. But so
miserably defective was the organization of congress, as an executive
body, that the year had far advanced before this measure, the utility
of which all acknowledged, could be carried into complete operation by
making all the appointments.

[Sidenote: Confederation adopted.]

About this time the articles of confederation were ratified. Much
difficulty was encountered in obtaining the adoption of this
instrument. The numerous objections made by the states yielded
successively to the opinion that a federal compact would be of vast
importance in the prosecution of the war. One impediment it was found
peculiarly difficult to remove. Within the chartered limits of several
states, were immense tracts of vacant territory, which, it was
supposed, would constitute a large fund of future wealth; and the
states not possessing that advantage insisted on considering this
territory as a joint acquisition. At length this difficulty also was
surmounted; and, in February, 1781, to the great joy of America, this
interesting compact was rendered complete.[71] Like many other human
institutions, it was productive, neither in war nor in peace, of all
the benefits which its sanguine advocates had expected. Had peace been
made before any agreement for a permanent union was formed, it is far
from being improbable that the different parts might have fallen
asunder, and a dismemberment have taken place.