To address this matter, in September 1786 delegates from five states met in Annapolis, Maryland, to discuss ways to improve interstate trade among the American states. The Annapolis Convention grew out of a compact between Virginia and Maryland, which had successfully resolved longstanding arguments over navigation rights on the Potomac and Chesapeake Rivers. Based on their experience negotiating agreements with Maryland, Virginia had asked Congress to call for the Annapolis Convention "to consider how far a universal system in their commercial relations may be necessary to their common interest and their permanent harmony." Although all thirteen states had been invited to attend the convention, only five states (Delaware, New Jersey, Virginia, New York, and Pennsylvania) participated—and only the first three of these had full delegations. In fact, even Maryland failed to send delegates to this convention, which was held in its own state. The New...