[Sidenote: =American Government.=] During the progress of the Revolution the civil government of the United States was in a deplorable condition. Nothing but the peril of the country had, in the first place, led to the calling of a Congress. When that body assembled, it had no constitution nor power of efficient action. The two great wants of the country were _money_ to carry on the war, and _a central authority_ to direct the war. Whenever Congress would attempt a firmer government, the movement would be checked by the remonstrance of the colonies. 2. Foremost of those who worked for better government was Benjamin Franklin. In 1775 he laid before Congress the plan of a perpetual confederation of the States. But the attention of that body was occupied with the war, and Franklin's measure received little notice. Congress, without any real authority, began to conduct the government, and its legislation was generally accepted by the States. [Sidenote: =Articles of Confederation.=] 3. On the 11th of June, 1776, a committee was appointed by Congress to prepare a plan of confederation. After a month the work was completed and laid before the house. The debates on the subject continued at intervals until the 15th of November, 1777, when a vote was taken in Congress, and the ARTICLES OF CONFEDERATION were adopted, which were then transmitted to the State legislatures for ratification. By them the new frame of government was returned to Congress with many amendments. These having been considered, the articles were signed by the delegates of eight States on the 9th of July, 1778. Those of Georgia, North Carolina, New Jersey, and Delaware signed before February, of 1779. Maryland did not assent until March of 1781. 4. The government of the United States under the confederation was a loose union of independent commonwealths. The executive and legislative powers were vested in Congress--a body composed of not less than two nor more than seven representatives from each State. The sovereignty was reserved to the States. There was no chief magistrate and no general judiciary. The consent of nine States was necessary to complete an act of legislation. The union was declared to be perpetual. [Sidenote: =Inadequacy of the Confederation.=] 5. On the 2d of March, 1781, Congress assembled under the new government. From the first, its inadequacy was manifest. Congress had no real authority. The first duty was to provide for the payment of the war debt of thirty-eight million dollars. Congress recommended a general tax. Some of the States made the levy, others refused. Robert Morris was brought to poverty in a vain effort to sustain the government.