The difficulty of establishing principles of order and obedience, always considerable among raw troops, was increased by the short terms for which enlistments had been made.

The quotas of some of the colonies would be entitled to a discharge in November; and none were engaged to continue in service longer than the last of December.

The early orders evidence a state of things still more loose and unmilitary than was to be inferred from the circumstances under which the war had been commenced.
An additional inconvenience, derived from this mixed agency of local governments with that of the Union, was thus stated by General Washington in a letter addressed to congress:--"I should be extremely deficient in gratitude as well as justice, if I did not take the first opportunity to acknowledge the readiness and attention which the congress and different committees have shown to make every thing as convenient and agreeable as possible; but there is a vital and inherent principle of delay, incompatible with military service, in transacting business through such various and different channels.[12] I esteem it my duty, therefore, to represent the inconvenience that must unavoidably ensue from a dependence on a number of persons for supplies; and submit it to the consideration of congress, whether the public service will not be best promoted by appointing a Commissary General for the purpose."[13] [Footnote 12: The General was under the necessity of carrying on a direct correspondence, not only with the several colonial governments, but with the committees of all the important towns and some inferior places.] [Footnote 13: It is strange that an army should have been formed without such an officer.] Every military operation was also seriously affected by the total want of engineers, and the deficiency of working tools.
To increase difficulties already so considerable, the appointment of general officers, made by congress, gave extensive dissatisfaction, and determined several of those who thought themselves injured, to retire from the service.
These disadvantages deducted essentially from the capacity of the American force: but under them all, the General observed with pleasure "the materials for a good army." These were "a great number of men, able bodied, active, zealous in the cause, and of unquestionable courage." Possessed of these materials, he employed himself indefatigably in their organization.

The army was arranged into divisions and brigades; and congress was urged to the appointment of a Paymaster, Quarter-master General, and such other general staff as are indispensable in the structure of a regular military establishment.
The two armies continued to work on their respective fortifications, without seriously molesting each other.

Slight skirmishes occasionally took place, in which little execution was done; and, although the Americans made some advances, no attempt was made to dislodge them.
{September.} The Commander-in-chief submitted with reluctance to this state of apparent inactivity.