The delegates who met in Philadelphia in May 1787 did not agree on the best way to reform the government. Some delegates, like James Monroe of Virginia, hoped to strengthen the existing government by amending the Articles of Confederation. Others joined with Madison and Hamilton, who argued for a new governmental structure. Once representatives agreed to draft a new constitution, they still disagreed over questions of representation, the powers of state and national governments, and the limits of popular democracy. Significant compromises had to be reached on these issues to frame a new Constitution.

Other issues arose once the Constitution was ratified and George Washington was inaugurated as president. The government needed to be organized and staffed. A system for levying, collecting, and distributing funds had to be put in place. Diplomatic relations with foreign powers and Indian nations needed to be reestablished. A bill of rights, demanded by many state ratifying conventions, had to be drafted and approved. Finally, both proponents and opponents of the Constitution had to be convinced that this new government could respond to the varied needs of its citizens.