Notwithstanding the greatness of the exigency, and the pressure of the national wants, never, during the existence of the confederation, did all the states unite in assenting to this recommendation; so unwilling are men possessed of power, to place it in the hands of others.
[Sidenote: Reform in the organization of the executive departments.] About the same time a reform was introduced into the administration, the necessity of which had been long perceived.

From a misplaced prejudice against institutions sanctioned by experience, all the great executive duties had been devolved either on committees of congress, or on boards consisting of several members.

This unwieldy and expensive system had maintained itself against all the efforts of reason and public utility.

But the scantiness of the national means at length prevailed over prejudice, and the several committees and boards yielded to a secretary for foreign affairs, a superintendent of finance, a secretary of war, and a secretary of marine.

But so miserably defective was the organization of congress, as an executive body, that the year had far advanced before this measure, the utility of which all acknowledged, could be carried into complete operation by making all the appointments.
[Sidenote: Confederation adopted.] About this time the articles of confederation were ratified.