He knew that the vices inherent in the confederation were ineradicable and fatal, and he also knew that it was useless to expect any comprehensive reforms until the war was over.

The problem before him was whether the existing machine could be made to work until the British were finally driven from the country.
The winter of 1780-81 was marked, therefore, on his part, by an urgent striving for union, and by unceasing efforts to mend and improve the rickety system of the confederation.

It was with this view that he secured the dispatch of Laurens, whom he carefully instructed, to get money in Paris; for he was satisfied that it was only possible to tide over the financial difficulties by foreign loans from those interested in our success.

In the same spirit he worked to bring about the establishment of executive departments, which was finally accomplished, after delays that sorely tried his patience.

These two cases were but the most important among many of similar character, for he was always at work on these perplexing questions.
It is an astonishing proof of the strength and power of his mind that he was able to solve the daily questions of army existence, to deal with the allies, to plan attacks on New York, to watch and scheme for the southern department, to cope with Arnold's treason, with mutiny, and with administrative imbecility, and at the very same time consider the gravest governmental problems, and send forth wise suggestions, which met the exigencies of the moment, and laid the foundation of much that afterwards appeared in the Constitution of the United States.