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# Chapter 9: The Confederation and the Constitution 1776-1790 The example of changing a constitution by assembling the wise men of the State instead of assembling armies will be worth as much to the world as the former examples we had given them. **Thomas Jefferson, 1789** The American Revolutio...

# Chapter 9: The Confederation and the Constitution 1776-1790 The example of changing a constitution by assembling the wise men of the State instead of assembling armies will be worth as much to the world as the former examples we had given them. **Thomas Jefferson, 1789** The American Revolution was not a revolution in the sense of a radical or total change. It did not suddenly and violently overturn the entire political and social framework, as later occurred in the French and Russian Revolutions. What happened was accelerated evolution rather than outright revolution. During the conflict itself, people went on working and praying, marrying and playing. Many of them were not seriously disturbed by the actual fighting, and the most isolated communities scarcely knew that a war was on. But at war's end, all Americans faced a great question: what would be done with the independence that had been so dearly won? ## A Shaky Start Toward Union Prospects for erecting a lasting regime were far from bright. It is always difficult to set up a new government and doubly difficult to set up a new type of government. Disruptive forces stalked the land. The departure of some eighty thousand Loyalists left the new ship of state without conservative ballast, fostering sometimes unsound experimentation and innovation. Patriots had fought the war with a high degree of disunity, but they had at least concurred on allegiance to a common cause. Now even that was gone. It would have been almost a miracle if any government fashioned in all this confusion had long endured. Hard times, the bane of all regimes, set in shortly after the war and hit bottom in 1786. As if other troubles were not enough, British manufacturers, with dammed-up surpluses, began flooding the American market with cut-rate goods. War-baby American industries, in particular, suffered industrial colic from such ruthless competition. One Philadelphia newspaper in 1783 urged readers to don home-stitched garments of homespun cloth: Of foreign gewgaws let's be free, And wear the webs of liberty. Yet hopeful signs could be discerned. The thirteen sovereign states were basically alike in governmental structure and functioned under similar constitutions. Americans enjoyed a rich political inheritance, derived partly from Britain and partly from their own homegrown devices for self-government. Finally, they were blessed with political leaders of a high order in men like George Washington, James Madison, John Adams, Thomas Jefferson, and Alexander Hamilton. Ultimately, this formative moment, while more evolution than revolution, did usher in some striking changes-changes in social structures and customs, economic practices, and political institutions as well as ideas about race, class, and gender. ## Constitution Making in the States The Continental Congress in 1776 called upon the colonies to draft new constitutions. In effect, the Continental Congress was actually asking the colonies to summon themselves into being as new states. The sovereignty of these new states, according to the theory of republicanism, would rest on the authority of the people. For a time the manufacture of governments was even more pressing than the manufacture of gunpowder. Although the states of Connecticut and Rhode Island merely retouched their colonial charters, constitution writers elsewhere worked tirelessly to capture on black-inked parchment the republican spirit of the age. Massachusetts contributed one especially noteworthy innovation when it called a special convention to draft its constitution and then submitted the final draft directly to the people for ratification. Once adopted in 1780, the Massachusetts constitution could be changed only by another specially called constitutional convention. This procedure was later imitated in the drafting and ratification of the federal Constitution. Adopted almost a decade before the federal Constitution, the Massachusetts constitution remains the longest-lived constitution in the world. The newly penned state constitutions had many features in common. Their similarity, as it turned out, made easier the drafting of a workable federal charter when the time was ripe. In the British tradition, a "constitution" was not a written document, but rather an accumulation of laws, customs, and precedents. Americans invented something different. The documents they drafted were contracts that defined the powers of government, as did the old colonial charters, but they drew their authority from the people, not from the royal seal of a distant king. As written documents the state constitutions were intended to represent a fundamental law, superior to the transient whims of ordinary legislation. Most of these documents included bills of rights, specifically guaranteeing long-prized liberties against later legislative encroachment. Most of them required the annual election of legislators, who were thus forced to stay in touch with the mood of the people. All of them deliberately created weak executive and judicial branches, at least by present-day standards. A generation of quarreling with His Majesty's officials had implanted a deep distrust of despotic governors and arbitrary judges. In all the new state governments, the legislatures, as presumably the most democratic branch of government, were given sweeping powers. But as Thomas Jefferson warned, "173 despots [in a legislature] would surely be as oppressive as one." Many Americans soon came to agree with him. The democratic character of the new state legislatures was vividly reflected by the presence of many members from the recently enfranchised poorer western districts. Their influence was powerfully felt in their several successful movements to relocate state capitals from the haughty eastern seaports into the less pretentious interior. In the Revolutionary era, the capitals of New Hampshire, New York, Virginia, North Carolina, South Carolina, and Georgia were all moved westward. These geographical shifts portended political shifts that deeply discomfited many more conservative Americans. ## Economic Crosscurrents Economic changes begotten by the war were likewise noteworthy, but not overwhelming. States seized control of former crown lands, and although rich speculators had their day, many of the large Loyalist holdings were confiscated and eventually cut up into small farms. Roger Morris's huge estate in New York, for example, was sliced into 250 parcels-thus accelerating the spread of economic democracy. The frightful excesses of the French Revolution were avoided, partly because cheap land was easily available and because America had so few deeply entrenched landed aristocrats to be overthrown. It is highly significant that in the United States, economic democracy, broadly speaking, preceded political democracy. A sharp stimulus was given to manufacturing by the prewar nonimportation agreements and later by the war itself. Goods that had formerly been imported from Britain were mostly cut off, and the ingenious Yankees were forced to make their own. Ten years after the Revolution, busy Brandywine Creek, south of Philadelphia, was turning the water wheels of numerous mills along an eight-mile stretch. Yet America remained overwhelmingly a nation of soil-tillers. Economically speaking, independence had drawbacks. Much of the coveted commerce of Britain was still reserved for the loyal parts of the empire. American ships were now barred from British and British West Indies harbors. Fisheries were disrupted, and bounties for ships' stores had abruptly ended. In some respects the hated British Navigation Laws were more disagreeable after independence than before. New commercial outlets, fortunately, compensated partially for the loss of old ones. Americans could now trade freely with foreign nations, subject to local restrictions-a boon they had not enjoyed in the days of mercantilism. Enterprising Yankee shippers ventured boldly-and profitably into the Baltic and China Seas. In 1784 the Empress of China, carrying a valuable weed (ginseng) that was highly prized by Chinese herb doctors as a cure for impotence, led the way into the East Asian markets. Yet the general economic picture was far from rosy. War had spawned demoralizing extravagance, speculation, and profiteering, with profits for some as indecently high as 300 percent. State governments had borrowed more during the war than they could ever hope to repay. Runaway inflation had been ruinous to many citizens, and Congress had failed in its feeble attempts to curb economic laws. The average citizen was probably worse off financially at the end of the shooting than at the start. The whole economic and social atmosphere was unhealthy. A newly rich class of profiteers was noisily conspicuous, whereas many once-wealthy people were left destitute. The controversy leading to the Revolutionary War had bred a keen distaste for taxes and encouraged disrespect for the majesty of the law generally. John Adams had been shocked when gleefully told by a horse-jockey neighbor that the courts of justice were all closed-a plight that proved to be only temporary. ## Creating a Confederation The Second Continental Congress of Revolutionary days was little more than a conference of ambassadors from the thirteen states. It was totally without constitutional authority and in general did only what it dared to do, though it asserted some control over military affairs and foreign policy. In nearly all respects, the thirteen states were sovereign, for they coined money, raised armies and navies, and erected tariff barriers. The legislature of Virginia even ratified separately the treaty of alliance of 1778 with France. Shortly before declaring independence in 1776, Congress appointed a committee to draft a written constitution for the new nation. The finished product was the Articles of Confederation. Adopted by Congress in 1777, it was translated into French after the Battle of Saratoga so as to convince France that America had a genuine government in the making. The Articles were not ratified by all thirteen states until 1781, less than eight months before the victory at Yorktown. The chief apple of discord was western lands. Six of the jealous states, including Pennsylvania and Maryland, had no holdings beyond the Allegheny Mountains. Seven, notably New York and Virginia, were favored with enormous acreage, in most cases on the basis of earlier charter grants. The six land-hungry states argued that the more fortunate states would not have retained possession of this splendid prize if all the other states had not fought for it also. A major complaint was that the land-rich states could sell their trans-Allegheny tracts and thus pay off pensions and other debts incurred in the common cause. States without such holdings would have to tax themselves heavily to defray these obligations. Why not turn the whole western area over to the central government? Unanimous approval of the Articles of Confederation by the thirteen states was required, and land-starved Maryland stubbornly held out until March 1, 1781. Maryland at length gave in when New York surrendered its western claims and Virginia seemed about to do so. To sweeten the pill, Congress pledged itself to dispose of these vast areas for the "common benefit." It further agreed to carve from the new public domain not colonies, but a number of "republican" states, which in time would be admitted to the Union on terms of complete equality with all the others. This extraordinary commitment faithfully reflected the anticolonial spirit of the Revolution, and the pledge was later fully redeemed in the famed Northwest Ordinance of 1787 (see Map 9.1). Fertile public lands thus transferred to the central government proved to be an invaluable bond of union. The states that had thrown their heritage into the common pot had to remain in the Union if they were to reap their share of the advantages from the land sales. An army of westward-moving pioneers purchased their farms from the federal government, directly or indirectly, and they learned to look to the national capital, rather than to the state capitals-with a consequent weakening of local influence. Finally, a uniform national land policy was made possible. ## The Articles of Confederation: America's First Constitution The Articles of Confederation--some have said "Articles of Confusion"--provided for a loose confederation or "firm league of friendship." Thirteen independent states were thus linked together for joint action in dealing with common problems, such as foreign affairs. A clumsy Congress was to be the chief agency of government. There was no executive branch-George III had left a bad taste-and the vital judicial arm was left almost exclusively to the states. Congress, though dominant, was severely hobbled. Each state had a single vote, so that some sixty-eight thousand Rhode Islanders had the same voice as more than ten times that many Virginians. All bills dealing with subjects of importance required the support of nine states; any amendment of the Articles themselves required unanimous ratification. Unanimity was almost impossible, and this meant that the amending process, perhaps fortunately, was unworkable. If it had been workable, the Republic might have struggled along with a patched-up Articles of Confederation rather than replace it with an effective Constitution. The shackled Congress was weak and was purposely designed to be weak. Suspicious states, having just won control over taxation and commerce from Britain, had no desire to yield their newly acquired privileges to an American parliament-even one of their own making. Two handicaps of Congress were crippling. It had no power to regulate commerce, and this loophole left the states free to establish different, and often conflicting, laws regarding tariffs and navigation. Nor could Congress enforce its tax-collection program. It established a tax quota for each of the states and then asked them please to contribute their share on a voluntary basis. The central authority-a "government by supplication"-was lucky in any year it received one-fourth of its requests. The feeble national government in Philadelphia could advise and advocate and appeal. But in dealing with the independent states, it could not command, coerce, or control. It could not act directly upon the individual citizens of a sovereign state; it could not even protect itself against gross indignities. In 1783 a group of mutinous Pennsylvania soldiers, whose pay was in arrears, marched to Philadelphia and made a threatening demonstration in front of Independence Hall. After Congress appealed in vain to the state for protection, its members fled to safety at Princeton College in New Jersey. The new Congress, with all its paper powers, was even less effective than the old Continental Congress, which had wielded no constitutional powers at all. Yet the Articles of Confederation, weak though they were, proved to be a landmark in government. They were for those days a model of what a loose confederation could be. Thomas Jefferson enthusiastically hailed the new structure as the best one "existing or that ever did exist." To compare it with the European governments, he thought, was like comparing "heaven and hell." But although the Confederation was praiseworthy as confederations went, the troubled times demanded not a loosely woven confederation but a tightly knit federation. This involved the yielding by the states of their sovereignty to a completely recast federal government, which in turn would leave them free to control their local affairs. In spite of their defects, the anemic Articles of Confederation were a significant stepping stone toward the present Constitution. They clearly outlined the general powers that were to be exercised by the central government, such as making treaties and establishing a postal service. As the first written constitution of the Republic, the Articles kept alive the flickering ideal of union and held the states together-until such time as they were ripe for the establishment of a strong constitution by peaceful, evolutionary methods. Without this intermediary jump, the states probably would never have consented to the breathtaking leap from the old boycott Association of 1774 to the Constitution of the United States. ## Landmarks in Land Laws Handcuffed though the Congress of the Confederation was, it succeeded in passing supremely farsighted pieces of legislation. These related to an immense part of the public domain recently acquired from the states and commonly known as the Old Northwest. This area of land lay northwest of the Ohio River, east of the Mississippi River, and south of the Great Lakes. The first of these red-letter laws was the *Land Ordinance of 1785* (see Map 9.2). It provided that the acreage of the Old Northwest should be sold and that the proceeds should be used to help pay off the national debt. The vast area was to be surveyed before sale and settlement, thus forestalling endless confusion and lawsuits. It was to be divided into townships six miles square, each of which in turn was to be split into thirty-six sections of one square mile each. The sixteenth section of each township was set aside to be sold for the benefit of the public schools-a priceless gift to education in the Northwest. The orderly settlement of the Northwest Territory, where the land was methodically surveyed and titles duly recorded, contrasted sharply with the chaos south of the Ohio River, where uncertain ownership was the norm and fraud was rampant. Even more noteworthy was the *Northwest Ordinance of 1787*, which related to the governing of the Old Northwest. This law came to grips with the problem of how a nation should deal with its colonies-the same problem that had bedeviled the king and Parliament London. The solution provided by the Northwest Ordinance was a judicious compromise: temporary tutelage, then permanent equality. First, there would be two evolutionary territorial stages, during which the area would be subordinate to the federal government. Then, when a territory could boast sixty thousand inhabitants, it might be admitted by Congress as a state, with all the privileges of the thirteen charter members. (This is precisely what the Continental Congress had promised the states when they surrendered their lands in 1781.) The ordinance also forbade slavery in the Old Northwest - a path-breaking step, though it exempted slaves already present. The wisdom of Congress in handling this explosive problem deserves warm praise. If it had attempted to chain the new territories in permanent subordination, a second American Revolution almost certainly would have erupted in later years, fought this time by the West against the East. Congress thus neatly solved the seemingly insoluble problem of empire. The scheme worked so well that its basic principles were ultimately carried over from the Old Northwest to other frontier areas. ## The World's Ugly Duckling Foreign relations, especially with London, remained troubled during these anxious years of the Confederation. Britain resented the stab in the back from its rebellious offspring and for eight years refused to send a minister to America's "backwoods" capital. London suggested, with barbed irony, that if it sent one, it would have to send thirteen. Britain flatly declined to make a commercial treaty or to repeal its ancient Navigation Laws. Lord Sheffield, whose ungenerous views prevailed, argued persuasively in a widely sold pamphlet that Britain would win back America's trade anyhow. Commerce, he insisted, would naturally follow old channels. So why go to the Americans hat in hand? The British also officially closed their profitable West Indies trade to the United States, though the Yankees, with their time-tested skill in smuggling, illegally partook nonetheless. Scheming British agents were also active along the far-flung northern frontier. They intrigued with the disgruntled Allen brothers of Vermont and sought to annex that rebellious area to Britain. Along the northern border, the redcoats continued to hold a chain of trading posts on U.S. soil, and there they maintained their fur trade with the Indians. One plausible excuse for remaining was the failure of the American states to honor the treaty of peace in regard to debts and Loyalists. But the main purpose of Britain in hanging on was probably to curry favor with the Indians and keep their tomahawks lined up on the side of the king as a barrier against future American attacks on Canada. All these grievances against Britain were maddening to patriotic Americans. Some citizens demanded, with more heat than wisdom, that the United States force the British into line by imposing restrictions on their imports to America. But Congress could not control commerce, and the states refused to adopt a uniform tariff policy. Some "easy states" deliberately lowered their tariffs in order to attract an unfair share of trade. Spain, though recently an enemy of Britain, was openly unfriendly to the new Republic. It controlled the mouth of the all-important Mississippi, down which the pioneers of Tennessee and Kentucky were forced to float their produce. In 1784 Spain closed the river to American commerce, threatening the West with strangulation. Spain likewise claimed a large area north of the Gulf of Mexico, including a part of West Florida, granted to the United States by the British in 1783. At Natchez, on disputed soil, it held an important fort. It also schemed with the neighboring Indians, grievously antagonized by the rapacious land policies of Georgia and North Carolina, to hem in the Americans east of the Appalachians. Spain and Britain together, radiating their influence out among resentful Indian tribes, prevented America from exercising effective control over about half of its total territory (see Map 9.3). Even France, America's comrade-in-arms, cooled off now that it had humbled Britain. The French demanded the repayment of money loaned during the war and restricted trade with their bustling West Indies and other ports. Pirates of the North African states, including the arrogant Dey of Algiers, were ravaging America's Mediterranean commerce and enslaving Yankee sailors. The British purchased protection for their own subjects, and as colonists the Americans had enjoyed this shield. But as an independent nation, the United States was too weak to fight and too poor to bribe. A few Yankee shippers engaged in the Mediterranean trade with forged British protection papers, but not all were so bold or so lucky. John Jay, secretary for foreign affairs, derived some hollow satisfaction from these insults. He hoped they would at least humiliate the American people into framing a new government at home that would be strong enough to command respect abroad. ## The Horrid Specter of Anarchy Economic storm clouds continued to loom in the mid-1780s. The requisition system of raising money was breaking down; some of the states refused to pay anything, while complaining bitterly about the tyranny of "King Congress." Interest on the public debt was piling up at home, and the nation's credit was evaporating abroad. Individual states were getting out of hand. Quarrels over boundaries generated numerous minor pitched battles. Some of the states were levying duties on goods from their neighbors; New York, for example, taxed firewood from Connecticut and cabbages from New Jersey. A number of the states were again starting to grind out depreciated paper currency, and a few of them had passed laws sanctioning the semiworthless "rag money." As a contemporary rhymester put it, Bankrupts their creditors with rage pursue; No stop, no mercy from the debtor crew. An alarming uprising, known as Shays's Rebellion, flared up in western Massachusetts in 1786. Impoverished backcountry farmers, many of them Revolutionary War veterans, were losing their farms through mortgage foreclosures and tax delinquencies. Led by Captain Daniel Shays, a veteran of the Revolution, these desperate debtors demanded that the state issue paper money, lighten taxes, and suspend property takeovers. Hundreds of angry agitators, again seizing their muskets, attempted to enforce their demands. Massachusetts authorities responded with drastic action. Supported partly by contributions from wealthy citizens, they raised a small army. Several skirmishes occurred at Springfield - three Shaysites were killed, and one was wounded-and the movement collapsed. Daniel Shays, who believed that he was fighting anew against tyranny, was condemned to death but was later pardoned. Shays's followers were crushed, but the nightmarish memory lingered on. The Massachusetts legislature soon passed debtor-relief laws of the kind Shays had championed, seemingly confirming Thomas Jefferson's fear of "democratic despotism." "An elective despotism was not the government we fought for," Jefferson wrote. The outbursts of Shays and other distressed debtors struck fear in the hearts of the propertied class, who began to suspect that the Revolution had created a monster of "mobocracy." Unbridled republicanism, it seemed to many of the elite, had fed an insatiable appetite for liberty that was fast becoming license. In this state of affairs, many citizens feared that civic virtue, the bedrock of republican government, was insufficient to rein in self-interest and greed. It had become "undeniably evident," one skeptic sorrowfully lamented, "that some malignant disorder has seized upon our body politic." The antidote, a growing minority argued, was stronger central government. A few panicky citizens even talked of importing a European monarch to carry on where George III had failed. How critical were conditions under the Confederation? Conservatives, anxious to safeguard their wealth and position, naturally exaggerated the seriousness of the nation's plight. They were eager to persuade their fellow citizens to amend the Articles of Confederation in favor of a muscular central government. But the poorer states' rights people pooh-poohed the talk of anarchy. Many were debtors who feared that a powerful federal government would force them to pay their creditors. Yet friends and critics of the Confederation agreed that it needed some strengthening. Popular toasts were "Cement to the Union" and "A hoop to the barrel." The chief differences arose over how this goal should be attained and how a maximum degree of states' rights could be reconciled with a strong central government. America probably could have muddled through somehow with amended Articles of Confederation. But the adoption of a completely new constitution certainly spared the Republic much costly indecision, uncertainty, and turmoil. The nationwide picture was actually brightening before the Constitution was drafted. Nearly half the states had not issued semiworthless paper currency, and some of the monetary black sheep showed signs of returning to the sound-money fold. Prosperity was emerging from the fog of depression. Overseas shipping had largely regained its place in the commercial world. If conditions had been as bad in 1787 as painted by foes of the Articles of Confederation, the move for a new constitution would have encountered such heated opposition. ## Convention of “Demigods” A lack of commerce, more than any other problem, set off the chain reaction that led to a constitutional convention. Interstate squabbling this issue had become so alarming by 1786 that Virginia, taking the lead, issued a call for a convention at Annapolis, Maryland. Nine states appointed delegates, but only five formally represented. With so laughable a showing, nothing could be done about the ticklish question of commerce. A charismatic New Yorker, thirty-one-year-old Alexander Hamilton, brilliantly saved the convention from complete failure by engineering the adoption of a report. It called upon Congress to summon a convention to meet Philadelphia the next year, not merely with commerce alone, but to bolster the entire structure of the Articles of Confederation. Congress, though slowly and certainly dying in New York City, was reluctant to take a step that might hasten its day of reckoning. But after six of the states seized the bit in their teeth and appointed delegates anyhow, Congress belatedly issued the call for a convention "for the sole and express purpose of revising" the Articles of Confederation. Every state chose representatives, except for independent-minded Rhode Island (still "Rogues' Island"), a stronghold of paper-moneyites. These leaders had all been elected by state legislatures, whose members had been elected by voters who could qualify as property holders. This double distillation inevitably brought together select group of propertied men-the once-popular idea that they shaped the Constitution primarily to protect their personal financial interests no longer holds sway among historians. When one of them did suggest restricting federal office to major property owners, he was promptly denounced for the unwisdom of "interweaving into a republican constitution a veneration for wealth." A quorum of the fifty-five emissaries from twelve states finally convened at Philadelphia on May 25, 1787, in the imposing red-brick statehouse. The smallness of the assemblage facilitated intimate acquaintance and hence compromise. Sessions were held in complete secrecy, with armed sentinels posted at the doors. Delegates knew that they would generate heated differences, and they did not want to advertise their own dissensions or put the ammunition of harmful arguments into the mouths of the opposition. The caliber of the participants was extraordinarily high-"demigods," Jefferson called them. The urgency of the crisis induced the ablest men to drop their personal pursuits and come to the aid of their country. Most of the members were lawyers, and most of them fortunately were old hands at constitution making in their own states. George Washington, towering, austere, and aloof among the "demigods," was unanimously elected chairman. His enormous prestige, as "the Sword of the Revolution," served to quiet overheated tempers. Benjamin Franklin, then eighty-one, added the urbanity of an elder statesman, though he was inclined to be indiscreetly talkative in his declining years. Concerned for the secrecy of their deliberations, the convention assigned chaperones to accompany Franklin to dinner parties and make sure he held his tongue. James Madison, then thirty-six and a profound student of government, made contributions so notable that he has been dubbed "the Father of the Constitution." Alexander Hamilton, then only thirty-two, was present as advocate of a super-powerful central government. His five-hour speech in behalf of his plan, though the most eloquent of the convention, left only one delegate convinced-himself. Alexander Hamilton (1755-1804) clearly revealed his preference for an aristocratic government in his Philadelphia speech (1787): "All communities divide themselves into the few and the many. The first are the rich and wellborn, the other the mass of the people.... The people are turbulent and changing; they seldom judge or determine right. Give therefore to the first class a distinct, permanent share in the government. They will check the unsteadiness of the second, and as they cannot receive any advantage by change, they therefore will ever maintain good government." Most of the fiery Revolutionary leaders of 1776 were absent. Thomas Jefferson, John Adams, and Thomas Paine were in Europe; Samuel Adams and John Hancock were not elected by Massachusetts. Patrick Henry, ardent champion of states' rights, was chosen as a delegate from Virginia but declined to serve, declaring that he "smelled a rat." It was perhaps well that these architects of revolution were absent. The time had come to yield the stage to leaders interested in fashioning solid political systems. ## Patriots in Philadelphia The fifty-five delegates were a conservative, well-to-do body: lawyers, merchants, shippers, land speculators, and moneylenders. Not a single spokesperson was present from the poorer debtor groups. Nineteen of the fifty-five owned slaves. They were young (the average age was about forty-two) but experienced statesmen. Above all, they were nationalists, more interested in preserving and strengthening the young Republic than in further stirring the roiling cauldron of popular democracy. The delegates hoped to crystallize the last evaporating pools of Revolutionary idealism into a stable political structure that would endure. They strongly desired a firm, dignified, and respected government. They believed in republicanism but sought to protect the American experiment from its excesses at home and its weaknesses abroad. In a broad sense, the piratical Dey of Algiers, who highlighted the need for centralized authority in foreign-policymaking, was a Founding Father. They aimed to clothe the central authority with genuine power, especially in controlling tariffs, so that the United States could wrest satisfactory commercial treaties from foreign nations. The shortsighted hostility of the British mercantilists spurred the constitution framers to their task, and in this sense the illiberal Lord Sheffield was also a Founding Father. Other motives hovered in the Philadelphia hall. Delegates were determined to preserve the union, forestall anarchy, and ensure security of life and property against dangerous uprisings by the "mobocracy." Above all, they sought to curb the unrestrained democracy rampant in the various states. "We have, probably, had too good an opinion of human nature in forming our confederation," Washington concluded. The specter of the recent outburst in Massachusetts was especially alarming, and in this sense Daniel Shays was yet another Founding Father. Grinding necessity extorted the Constitution from a reluctant nation. Fear occupied the fifty-sixth chair. ## Hammering Out a Bundle of Compromises Some of the travel-stained delegates, when they first reached Philadelphia, decided upon a daring step. They would completely scrap the old Articles of Confederation, despite explicit instructions from Congress to revise. Technically, these bolder spirits were determined to overthrow the existing government of the United States (see Table 9.1) by peaceful means. A scheme proposed by populous Virginia, and known as "the large-state plan," was first pushed forward as the framework of the Constitution. The Virginia Plan's essence was that representation in both houses of a bicameral Congress should be based on population-an arrangement that would naturally give the larger states an advantage. Tiny New Jersey, suspicious of brawny Virginia, countered with "the small-state plan." The New Jersey Plan provided for equal representation in a unicameral Congress by states, regardless of size and population, as under the existing Articles of Confederation. The weaker states feared that under the Virginia scheme, the stronger states would band together and lord it over the rest. Angry debate, heightened by a stifling heat wave, led to deadlock. The danger loomed that the convention would unravel in complete failure. Even skeptical old Benjamin Franklin seriously proposed that the daily sessions be opened with a prayer by a local clergyman. After bitter and prolonged debate, the *Great Compromise* of the convention was hammered out and agreed upon. A cooling of tempers came coincidentally with a cooling of the temperature. The larger states were conceded representation by population in the House of Representatives (Art. I, Sec. II, para. 3; see the Appendix), and the smaller states were appeased by equal representation in the Senate (see Art. I, Sec. III, para. 1). Each state, no matter how poor or small, would have two senators. The big states obviously yielded more. As a sop to them, the delegates agreed that every tax bill or revenue measure must originate in the House, where population counted more heavily (see Art. I, Sec. VII, para. 1). This critical compromise broke the logjam, and from then on success seemed within reach. The final Constitution was short, not least because it grew out of the Anglo-American common law legal tradition, which made it unnecessary to be specific about every conceivable detail. It mostly provided a flexible guide to broad rules of procedure, rather than a fixed set of detailed laws. The original (unamended) Constitution contained just seven articles and ran to about ten printed pages. Elsewhere, where civil law traditions prevailed, constitutions took the form of elaborate legal codes and were often strikingly lengthy. India's constitution, for example, which came into force in 1950, contains almost four hundred articles and runs to nearly two hundred pages. In a significant reversal of the arrangement most state constitutions had embodied, the new Constitution provided for a robust-though still legally restrained-executive in the presidency. The framers were here partly inspired by the example of Massachusetts, where a vigorous, popularly elected governor had suppressed Shays's Rebellion. The president was to have broad authority to make appointments to domestic offices-including judgeships-as well as veto power over legislation. Yet presidential power was far from absolute. The president, as commander in chief, was granted the power to wage war, but Congress retained the crucial right to declare war-a division of responsibilities that has been an invitation to conflict between president and Congress ever since. The Constitution as drafted was a bundle of compromises; they stand out in every section. A key compromise was the method of electing the president indirectly by the Electoral College, rather than by direct means. While the large states would have the advantage in the first round of popular voting, as a state's share of electors was based on the total of its senators and representatives in Congress, the small states would gain a larger voice if no candidate got a majority of electoral votes and the election was thrown to the House of Representatives, where each state would have, for this purpose only, just a single vote (see Art. II, Sec. I, para. 2). Although the framers of the Constitution expected election by the House to occur frequently, it has happened just twice, in 1800 and in 1824. Dr. James McHenry (1753-1816), a delegate from Maryland to the Constitutional Convention of 1787, took notes on the arguments made for and against the drafting of a new constitution: "Gov. Randolph observed that the confederation is incompetent to any one object for which it was instituted...The framers of it wise and great men; but human rights were the chief knowle[d]ge of the times when it was framed so far as they applied to oppose Great Britain...Requisitions for men and money had never offered their form to our assemblies. None of those vices that have since discovered themselves were apprehended." ## The Clash of Federalists and Antifederalists The Framing Fathers early foresaw that nationwide acceptance of the Constitution would not be easy to obtain. A formidable barrier was unanimous ratification by all thirteen states, as required for amendment by the still-standing Articles of Confederation. But since absent Rhode Island was certain to veto the Constitution, the delegates boldly adopted a different scheme. They stipulated that when nine states had registered their approval through specially elected conventions, the Constitution would become the supreme law of the land in those states ratifying (see Art. VII). This was extraordinary, even revolutionary. It was in effect an appeal over the heads of the Congress that had called the convention, and over the heads of the legislatures that had chosen its members, to the people-or those of the people who could vote. In this way the framers could claim greater popular sanction for their handiwork. A divided Congress submitted the document to the states on this basis, without recommendation of any kind. The American people were somewhat astonished, so well had the secrets of the convention been concealed. The public had expected the old Articles of Confederation to be patched up; now it was handed a startling new document in which, many thought, the precious jewel of state sovereignty was swallowed up (see Table 9.3). One of the hottest debates of American history forthwith erupted. The antifederalists, who opposed the stronger federal government, were arrayed against the federalists, who obviously favored it. A motley crew gathered in the antifederalist camp. Its leaders included prominent revolutionaries like Samuel Adams, Patrick Henry, and Richard Henry Lee. Their followers consisted primarily, though not exclusively, of states' rights devotees, backcountry dwellers, and one-horse farmers-in general, the poorest classes (see Map 9.4). They were joined by paper-moneyites and debtors, many of whom feared that a potent central government would force them to pay off their debts-and at full value. Large numbers of antifederalists saw in the Constitution a plot by the upper crust to steal power back