As he awaited the official start of Congress, Madison outlined his original proposal, known as the Virginia Plan, which reflected his views as a strong nationalist. Delegates from Virginia and Pennsylvania approved Madison`s plan and formed the dominant coalition within the Convention.  The plan was inspired by national governments and was drafted in the form of fifteen resolutions setting out the fundamental principles. The system of mutual control that was to be at the heart of the U.S. Constitution was missing.  It called for the creation of a supreme national government and was a radical abandonment of the statutes of confederation.  On May 29, Virginia Governor Edmund Randolph presented the Virginia Plan to Congress.  The question of whether slavery should be governed by the new Constitution was a matter of conflict so intense between The North and the South that several southern states refused to join the Union if slavery was not allowed. Delegates opposed to slavery were forced to give in to their demands to ban slavery within the new nation. However, they continued to argue that the Constitution should prohibit states from participating in the international slave trade, including the importation of new slaves from Africa and the export of slaves to other countries. The convention postponed the final decision on the international slave trade because of the contentious nature of the issue to the late discussion. At the Break of the Convention at the end of July, the Retail Committee had inserted language prohibiting the federal government from prohibiting the international slave trade and imposing taxes on the purchase or sale of slaves. The Convention was unable to agree on these provisions when the matter returned at the end of August and therefore referred the matter to an eleven-member committee for further discussion.
This commission contributed to the development of a compromise: Congress would have the power to ban the international slave trade, but not for another twenty years (i.e. only in 1808). In exchange for this concession, the federal government`s power to regulate trade abroad would be strengthened by provisions authorizing the taxation of the slave trade on the international market and reducing the transit requirement of shipping laws by two-thirds of the majorities of the two houses of Congress.  On May 30, at the request of Governor Morris, the Convention declared that „it is appropriate to form a national government composed of supreme legislative, executive and judicial power.“  This was the first step in the Convention to go beyond its mandate, just to change the articles of Confederation and to form an entirely new government.  After approving the idea of a supreme national government, the Convention began discussing parts of the Virginia plan. These and other issues have worried many founders about the risk of the union disintegration as it existed until then.   In September 1786, delegates from five states met at the Annapolis Convention and invited all states to a larger convention to be held in Philadelphia in 1787.