binding although inefficient. To amend them according to their own
provisions would be legitimate if it could be accomplished.

[Illustration: SIGNATURES OF DELEGATES TO ANNAPOLIS CONVENTION.
Hamilton, Reed, Dickinson, Randolph, and Madison were the most prominent
members of this abortive meeting, which led eventually to the
Philadelphia Convention.]

This was considered by the majority of people the proper method; but
when the experiment was tried at Annapolis in 1786 of a meeting of
commissioners to devise a uniform regulation of trade and to report
such an amendment to their States for ratification, only twelve
delegates could be gotten together representing five States. Even the
State of Maryland, in which the meeting was held, failed to send a
representation. Each of the delinquent States had an excuse. The
commissioners who did go to Annapolis, headed by Hamilton, Dickinson,
and Madison, could only issue an appeal for another meeting of delegates
from the several States the following year in the more central city
of Philadelphia, empowered to consider not only the commercial troubles
but to "devise such further provisions as shall appear to them necessary
to render the constitution of the Federal Government adequate to the
exigencies of the Union."

It can scarcely be said that the failure at Annapolis was either a
surprise or a disappointment, because few had expected success. "The
expedient is no doubt liable to objections," said Madison, one of the
Virginia delegates, "and will probably miscarry. I think, however, it
is better than nothing." The object was unfortunately limited to
considering the commercial friction between the States and to regulating
their foreign relations. The conviction had become general that only