It was merely the rectitude of the measure.
For this purpose, the act, called the act of confederation (which was a sort of imperfect federal constitution), was proposed, and, after long deliberation, was concluded in the year 1781.

It was not the act of congress, because it is repugnant to the principles of representative government that a body should give power to itself.

Congress first informed the several states, of the powers which it conceived were necessary to be invested in the union, to enable it to perform the duties and services required from it; and the states severally agreed with each other, and concentrated in congress those powers.
It may not be improper to observe that in both those instances (the one of Pennsylvania, and the other of the United States), there is no such thing as the idea of a compact between the people on one side, and the government on the other.

The compact was that of the people with each other, to produce and constitute a government.

To suppose that any government can be a party in a compact with the whole people, is to suppose it to have existence before it can have a right to exist.