Congress, at that time, contained several members who perceived the advantages which would result from bestowing on the government of the nation the full power of regulating commerce, and, consequently, of increasing the import as circumstances might render adviseable; but state influence predominated, and they were overruled by great majorities.  Even the inadequate plan which 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.  If the confederation really preserved the idea of union until the good sense of the nation adopted a more efficient system, this service alone entitles that instrument to the respectful recollection of the American people, and its framers to their gratitude.