The Annapolis Convention of 1786 began as an ad-hoc gathering of the states to resolve differences regarding trade and commerce. Such efforts had not succeeded in Congress because of disagreements within that body and chronic absenteeism.
The Articles of Confederation, ratified in 1781 as the first official government of the United States, tightly restricted the power of Congress. The limitations and voting requirements made any legislation, enforcement, or revision of the Articles difficult, as a small number of states (five of thirteen) could block important legislation, and just one could block amendments. Problems with the system of government—strong, individual states and a weak central government—became clear quickly, especially in matters of trade and finance. Some state leaders called for a trade conference, without the involvement of Congress, in hopes they could ease these difficulties. In January 1786 Virginia's governor, Patrick Henry, invited each state to a convention set for the first Monday the following September in Annapolis, Maryland.
Only five states attended the Annapolis Convention, represented by twelve delegates. John Dickinson, George Read, and Richard Bassett represented Delaware. New Jersey sent Abraham Clark, William Churchill Houston, and James Schureman. Alexander Hamilton and Egbert Benson arrived from New York, and one delegate, Tench Coxe, represented Pennsylvania. James Madison, Edmund Randolph, and St. George Tucker of Virginia completed the assemblage. Massachusetts, New Hampshire, North Carolina, and Rhode Island appointed delegates who either did not make the trip or arrived after the convention had adjourned. The four remaining states—Connecticut, Maryland, Georgia, and South Carolina—did not even appoint delegates.
The convention officially began on 11 September and lasted four days. The delegates first elected John Dickinson as the chair of the convention, then read their instructions from their respective state legislatures. They quickly agreed that with so few states represented, and with such differing instructions, a new convention should be called. The group unanimously appointed Delegates Benson, Clarke, Coxe, Read, and Randolph to draft a report to submit to the states and Congress. On 13 September the committee presented its report, drafted by Hamilton, to the larger group. It called for a new convention in Philadelphia, beginning the second Monday of May 1787, to address not just matters of trade, but "the general System of the federal government" as well. On 14 September the delegates approved the report and adjourned.
Congress took up the Annapolis recommendation on 11 October 1786, appointing a committee to consider the report. After intense debate, the committee recommended on 21 February that Congress endorse the proposed Philadelphia Convention, which it did with little further controversy. Seven states had appointed delegates to the Philadelphia Convention even before Congress's approval. The remaining states, except Rhode Island, had appointed delegates by May 1787.
Scholars of the Constitutional Convention of 1787 generally recognize the Annapolis Convention as an important step toward the new constitution. Yet they usually portray it as a failure. Because so few states attended, the convention could accomplish none of its objectives, making a new convention necessary. The Annapolis Convention is also seen as proof of the failure of the Articles of Confederation; some historians have addressed it in regional terms, asserting that regional divisions in Congress necessitated outside efforts such as the Annapolis Convention. Others, however see the 1786 conference as a turning point in the minds of leaders such as James Madison toward support for a new central government. Additionally, the Annapolis Convention was a turning point for the country, as it was the first conference to meet, whereas previous efforts had come to nothing, to consider constitutional reform. Further, it established a model for the Philadelphia Convention. Previously, the question had often arisen of how to revise the Articles, as just one state could repeatedly block reform attempts in Congress. Rather than a failure, the Annapolis Convention showed the potential for an extra-congressional assembly, and thus enabled the Constitutional Convention of 1787.