This proposal for a general trade convention seemingly met with general
approval; nine States appointed commissioners. Under the leadership of
the Virginia delegation, which included Randolph and Madison, Annapolis
was accepted as the place and the first Monday in September 1786 as the
time for the convention. The attendance at Annapolis proved
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