Hamilton was not a conspicuous national figure during the four years which elapsed between the termination of his term in Congress and his appearance in the Federal Convention of 1787. He was working none the less earnestly and persistently, however, in favor of a stronger union. Movements towards this union took form almost simultaneously in different parts of the country under the impulse of a common need. The wise and thoughtful words of Washington, in his circular letter to the governor of each state on surrendering the command of the army (June 8, 1783), sank into many hearts, and did much to soften local prejudices against giving more power to the central government. The State of Virginia in December, 1783, ceded her northwestern territory to Congress, and granted a general impost. Significance was given to the act by the policy of the governor in communicating it to the executive authority of the other states, with the suggestion that they do likewise.
Jefferson was as cordial a supporter as Madison at that time of the project of a federal union. As a member of Congress, he prepared a plan for intercourse with the powers of Europe and the Barbary States, in which he described "the United States as one nation upon the principles of the federal constitution." Only two states--Rhode Island and Connecticut--voted to substitute weaker words in describing the union. It was voted by eight states to two (March 26, 1784) that in treaties and in all cases arising under them, the United States formed "one nation." The need for uniform rules for the regulation of commerce on the Potomac and the creation of roads and canals led to a number of conferences during the next two years between Virginia and Maryland, in one of which Washington played the part of referee. The legislature of Maryland finally took a step which shot a bright ray of light through the darkness surrounding the prospects of a permanent union. In a letter to the legislature of Virginia (December, 1785), it proposed that commissioners from all the states should be invited to meet and regulate the restrictions on commerce for the whole. Madison in Virginia gave cordial welcome to the invitation. He had already gone beyond the sentiment of his state in his zeal for union, but at his instigation a meeting of delegates from the states was called by Virginia at Annapolis, Md., for September, 1786.