The only other power with which the United States desired commercial relations without possessing them was Spain. The Eastern States were very anxious to obtain privileges of trade. The Spanish were willing to grant them, but made it a condition that the Americans should not have the right of free navigation of the lower Mississippi. Jay, acting under the instruction of Congress, in 1786 negotiated a treaty in which he agreed to the Spanish conditions. Instantly the West was aroused, and violent threats were made by the people of Kentucky and the adjacent region that if that treaty went into effect they would withdraw from the Union. "The tendency of the States," said Madison, a few months later, "to violations of the laws of nations and treaties ... has been manifest.... The files of Congress contain complaints already from almost every nation with which treaties have been formed." 57. DISINTEGRATION OF THE UNION (1786, 1787). [Sidenote: The Confederation violated.] [Sidenote: Danger of anarchy.] The year 1786 marks a crisis in the development of the Union. The inefficiency of Congress was reflected in the neglect of constitutional duties by the States: Rhode Island recalled her delegates, and refused to appoint new members; New Jersey felt so much injured by a New York tariff that an act was passed taxing the lighthouse established by New York on Sandy Hook; Massachusetts, Pennsylvania, North Carolina, and Georgia already had raised troops on their own account and for their own purposes, in violation of the Articles of Confederation. Davie, of North Carolina, a little later declared that the "encroachments of some States on the rights of others, and of all on those of the Confederation, are incontestable proofs of the weakness and imperfections of that system." Of the requisition of that year for $2,000,000 in specie, only about $400,000 was paid. Some States offered their own depreciated notes, and New Jersey refused to make any contribution until the offensive New York Acts were withdrawn. In May, 1786, Charles Pinckney on the floor of Congress declared that "Congress must be invested with more powers, or the federal government must fall." 58. REORGANIZATION ATTEMPTED (1781-1787). [Sidenote: Five percent scheme.] [Sidenote: Revenue scheme.]