ed
disappointing. Only five States--Virginia, Pennsylvania, Delaware, New
Jersey, and New York--were represented; delegates from Massachusetts,
New Hampshire, North Carolina, and Rhode Island failed to attend.
Because of the small representation, the Annapolis convention did not
deem "it advisable to proceed on the business of their mission." After
an exchange of views, the Annapolis delegates unanimously submitted to
their respective States a report in which they suggested that a
convention of representatives from all the States meet at Philadelphia
on the second Monday in May 1787 to examine the defects in the existing
system of government and formulate "a plan for supplying such defects as
may be discovered."[i]

The Virginia legislature acted promptly upon this recommendation and
appointed a delegation to go to Philadelphia. Within a few weeks New
Jersey, Pennsylvania, North Carolina, Delaware, and Georgia also made
appointments. New York and several other States hesitated on the ground
that, without the consent of the Continental Congress, the work of the
convention would be extra-legal; that Congress alone could propose
amendments to the Articles of Confederation. Washington was quite
unwilling to attend an irregular convention. Congressional approval of
the proposed convention became, therefore, highly important. After some
hesitancy Congress approved the suggestion for a convention at
Philadelphia "for the sole and express purpose of revising the Articles
of Confederation and reporting to Congress and the several legislatures
such alterations and provisions therein as shall when agreed to in
Congress and confirmed by the States render the Federal Constitution
adequate to the exigencies of Government and the preservation of the
Union."

Thereupon, the remaining States, Rhode Island alone excepted, appointed
in due course delegates to the Convention, and Washington accepted
membership on the Virginia delegation.

Although scheduled to convene on May 14, 1787, it was not until May 25
that enough delegates were present to proceed with the organization of
the Convention. Washington was elected as presiding officer. It was
agreed that the sessions were to be strictly secret.

On May 29 Randolph, on behalf of the Virginia delegation, submitted to
the convention 15 propositions as a plan of government. Despite the fact
that the delegates were limited by their instructions to a revision of
the Articles, Virginia had