the patriots. In Massachusetts, Berkshire County remained until 1780
practically independent, and the county convention did not scruple to
declare to the General Court that there were "other States which will, we
doubt not, as bad as we are, gladly receive us."


45. FORMATION OF A CONSTITUTION (1776-1781).


[Sidenote: Preliminaries of a constitution.]
[Sidenote: Articles submitted.]

One cause of the weakness of Congress and the disorders in the States was
the want of a settled national government. The Continental Congress
understood that it was but a makeshift, and on the day when a committee
was formed to frame a Declaration of Independence, another committee was
appointed to draw up Articles of Confederation. It reported July 12, 1776;
but the moment discussion began, it was seen that there were almost
insuperable difficulties. The first was the question whether each State
should have one vote, as in the existing government, or whether each
should cast a number of votes in proportion to its population; the second
question was how revenue should be raised and assessed; the third was how
the western country should be held; the fourth was what powers should be
given to the general government, and what retained by the States; the
fifth, how disputes within the Union should be settled. When, on Nov. 15,
1777, Congress had finally adopted a draft of Articles of Confederation,
the decline of its power and influence was reflected in the proposed
instrument of government. On the question of representation, the rule of
vote by States was continued. The only taxation was a formal system of
requisitions on the States. Here the question of slavery was unexpectedly