This could not go on forever. They must be either wholly independent of one another or more closely united. The difficulty was more apparent where two States were neighbors. Virginia and Massachusetts might manage to live apart, though in that case troubles would be sure to arise, but how could Virginia and Maryland maintain their individual independence? The Chesapeake and Potomac seemed to belong to one as much as to the other; and when foreign vessels came up the stream, was each State to have its own rules and regulations? No. They must treat strangers at any rate in some way that would not make each the enemy of the other. These two States felt this so strongly that they appointed a commission to consider what could be done. Washington was a member of the commission, and asked all the gentlemen to his house. They not only discussed the special subject committed to them, but they looked at the whole matter of the regulation of commerce in a broad way, and agreed to propose to the two States to appoint other commissioners, who should advise with Congress and ask all the States of the Union to send delegates to a meeting where they could arrange some system by which all the States should act alike in their treatment of foreign nations and of each other. That was exactly what Congress ought to have been able to do, but could not, because nobody paid any attention to it. Nor did this meeting, which was called at Annapolis in September, 1786, accomplish very much. Only five States sent delegates, and these delegates were so carefully instructed not to do much, that it was impossible for the convention to settle affairs. Still, it was a step forward. It was very clear to the delegates that a general convention of all the States was necessary, and so they advised another meeting at which all the thirteen States should be represented, and the whole subject of the better union of the States should be considered.