ANALYTICAL READING ACTIVITIES

TOPIC 1.4

AP United States
Government
and Politics
Please note: Some aspects of this activity may no longer perfectly align with the
AP course and exam following updates made in June, 2023. Even though there
have been updates to the course, teachers indicate that these activities still
provide instructional value.
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Acknowledgements
AP Curriculum, Instruction, and Assessment Team
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AP U.S. Government and Politics Instructional Design Team

Alicia Ross, Blue Ridge High School, New Milford, PA
Michael Dies, YES Prep Southeast, Houston, TX
Matt Furfaro, Concord Community High School, Elkhart, IN

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Christopher Budano

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AP U.S. Government and Politics Analytical Reading Activities

Topic 1.4: Challenges of the

Articles of Confederation Required Document:
Excerpts from The Articles of
Confederation
Concept Application Paired with: Excerpts from
Letter #1 of the Federal
Before You Read Farmer to the Republican
The first government of the United States was established in the Articles
of Confederation. Challenges with this form of government caused many
to support the new Constitution. As you prepare to analyze the Articles, Related Concepts:
think about what you remember about the issues that many had with this ◼◼ Constitution
governmental structure. Some categories have been provided to guide your
brainstorming. ◼◼ Confederation

Issues What you recall

◼◼ Challenges under the
Articles of Confederation
Raising and
collecting ◼◼ Shays’ Rebellion
taxes The federal government did not have the power to
impose taxes and could only ask for volunteers to give
money.
Process
Describe structures and
functions.

Making
changes Concept Application
to the Describe political principles,
The majority of the states had to agree on making changes
government institutions, processes,
policies, and behaviors.

State versus
federal power The state government had more power than the federal government.

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AP U.S. Government and Politics Analytical Reading Activities

The Articles of Confederation

You may already know that our Constitution sets up a federal system, in
which states are joined together but with a national government that is
supreme when there is a conflict and with certain powers that are exclusive
to the national government (e.g., regulating inter-state and international
trade, declaring war, concluding treaties, etc.).

The Articles of Confederation, however, set up a different type of

government. As you read the text, consider how the government under
the Articles was structured. Identify how power was divided between the
national government and the states. As you read, consider the challenges
that some of the provisions of the Articles may have presented to the young
country.
The directions and questions in the margin will guide your note-taking and
help you see how the government under the Articles of Confederation was
structured and designed to function as our first plan of government.

The Articles of Confederation

Authored by the Second Continental Congress, 1777
Ratified by Maryland (last state to do so) on March 1, 1781

Of Confederation and perpetual Union between the States of New

Hampshire, Massachusetts Bay, Rhode Island and Providence Plantations, Academic Vocabulary
Connecticut, New York, New Jersey, Pennsylvania, Delaware, Maryland, What is meant by a confederation?
Virginia, North Carolina, South Carolina and Georgia.
It is mean as a union of groups, those who
have a common interest or action.

ARTICLE I.
The [Style] of this confederacy shall be “The United States of America.” Check Your Understanding
What do you think is the purpose
of this document?
The document serves to explain the new
Constitution and how the government will
function.

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AP U.S. Government and Politics Analytical Reading Activities

ART. II.
Each state retains its sovereignty, freedom, and independence, and every Academic Vocabulary
power, jurisdiction, and right, which is not by this confederation expressly Use your prior knowledge and
delegated to the United States, in Congress assembled context clues to define sovereignty
and jurisdiction in the space below
the paragraph.

Sovereignty- The power to govern one self

Check Your Understanding
Jurisdiction- The power to make decisions
Highlight or underline what the
document says here about the
powers of the states.

ART. III.
Check Your Understanding
The said States hereby severally enter into a firm league of friendship with
Circle the clues in this article that
each other, for their common defense, the security of their liberties, and help explain the founders’ idea of a
their mutual and general welfare, binding themselves to assist each other, confederation.
against all force offered to, or attacks made upon them, or any of them, on
account of religion, sovereignty, trade, or any other pretense whatever. . . .

Concept Application
ART. V.
Summarize the structure of the
For the more convenient management of the general interests of the Congress as outlined in the
united States, delegates shall be annually appointed in such manner as Articles.
the legislature of each State shall direct, to meet in Congress on the first
Monday in November, in every year, with a power reserved to each State to Each state chooses a representative and
recall its delegates, or any of them, at any time within the year, and to send those representatives will annually meet
others in their stead for the remainder of the year. every first monday of November.
No State shall be represented in Congress by less than two, nor more than
seven members; and no person shall be capable of being a delegate for
more than three years in any term of six years; nor shall any person, being a
delegate, be capable of holding any office under the united States, for which
he, or any other for his benefit, receives any salary, fees or emolument of Check Your Understanding
any kind. Each State shall maintain its own delegates in a meeting of the
Highlight or underline how many
States, and while they act as members of the committee of the States. In votes each state had under the
determining questions in the united States in Congress assembled, each Articles.
state shall have one vote. …

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AP U.S. Government and Politics Analytical Reading Activities

ART. VIII. Check Your Understanding

All charges of war, and all other expenses that shall be incurred for the Circle the text that explains
common defense or general welfare, and allowed by the united States in how taxes will be assessed and
congress assembled, shall be defrayed out of a common treasury, which collected under the Articles.
shall be supplied by the several States in proportion to the value of all land
within each state, granted to or surveyed for any person, as such land and Concept Application
the buildings and improvements thereon shall be estimated according to How is power divided between the
such mode as the united States in congress assembled, shall from time states and the national government
to time direct and appoint. The taxes for paying that proportion shall be in Article VIII?
laid and levied by the authority and direction of the legislatures of the The federal had to ask for money instead of
several States within the time agreed upon by the united States in congress
imposing taxes on the states and it's
assembled.
people.

Academic Vocabulary
... Define commerce using the context
of this article.
ART. IX. An economy where one is buying and
The united States in congress assembled, shall have the sole and exclusive selling.
right and power of determining on peace and war, except in the cases
mentioned in the sixth article—of sending and receiving ambassadors—
entering into treaties and alliances, provided that no treaty of commerce Check Your Understanding
shall be made whereby the legislative power of the respective States shall In this passage, find evidence that
be restrained from imposing such imposts and duties on foreigners, as Congress lacked the sole power
their own people are subjected to, or from prohibiting the exportation or to regulate commerce under the
Articles. Highlight or underline
importation of any species of goods or commodities whatsoever …
where you see that evidence.

... The united States in congress assembled shall never engage in a war, Connect to Content
nor grant letters of marque and reprisal, in time of peace, nor enter into any Describe one way in which the
treaties or alliances, nor coin money, nor regulate the value thereof, nor powers granted to Congress under
the Articles caused problems for
ascertain the sums and expenses necessary for the defense and welfare
the young republic.
of the united states, or any of them, nor emit bills, nor borrow money on
Having few people can cause
the credit of the united states, nor appropriate money, nor agree upon the
number of vessels of war, to be built or purchased, or the number of land uneasiness.
or sea forces to be raised, nor appoint a commander in chief of the army or
navy, unless nine States assent to the same: nor shall a question on any
other point, except for adjourning from day to day be determined, unless by
the votes of the majority of the united States in congress assembled. Concept Application
Describe the difficulties the powers
not granted to Congress in this
section of the Articles would likely
have caused to the function of the
government.
Since they could not regulate the
economy, they could not have a
imposts: something imposed, i.e. taxes strong economic system

duties: taxes on imported goods

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AP U.S. Government and Politics Analytical Reading Activities

ART. XIII. Check Your Understanding

Every State shall abide by the determination of the united States in Circle how many states would
congress assembled, on all questions which by this confederation are have to agree to any changes
submitted to them. And the Articles of this Confederation shall be (amendments) to the Articles.
inviolably observed by every state, and the union shall be perpetual; nor
shall any alteration at any time hereafter be made in any of them; unless Concept Application
such alteration be agreed to in a congress of the united States, and be How does the amendment
afterwards confirmed by the legislatures of every State process reflect the division of
power between the Confederation
Congress and the states?
How might the amendment
process impact the functions of the
government?
Congress has no power, which makes it
harder for a government to function
because the proccess for change is
harder.

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AP U.S. History Analytical Reading Activities

After You Read

Thinking Like a Political Scientist

Reasoning Process: Process

What were the characteristics of Congress outlined in the Articles of
Confederation?
Congress had the right to determine war or peace, deal with foreign policies, and economy.

Based on this reading, what are your thoughts about the structural
weaknesses of the Articles?
The states had more power over the federal government. There was no balance of
power, which made the country weak.

Political Science Disciplinary Practices

Concept Application
Going beyond the text, what challenges were or might have been faced by a
government in which the national government is designed to be weak?
The government lacked funds for an army because they could not tax, so they
could not protect the people well.

The evidence in the text supports the idea that the national government
relied on a large majority of the states to take action. How does this feature
of the Articles of Confederation influence the balance of power between the
states and the national government?
There was unequal power because they had to rely on the state power.

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AP U.S. Government and Politics Analytical Reading Activities

Letter #1 from the Federal

Farmer to the Republican

“Letter #1 of the Federal Farmer to the Republican” is one of the most often
read and cited works of the Anti-Federalists. While the author used the
pseudonym, Federal Farmer, many have speculated these letters to be the
work of Richard Henry Lee. Lee was a prominent Anti-Federalist who was
selected to be a delegate to the Constitutional Convention but refused to
serve.
This text presents a somewhat complex argument that can only be
understood with a clear comprehension of some of the key provisions of
the Articles of Confederation and the reasons that the Second Continental
Congress and the states decided to create a weak central government.
However, it is also critical to consider the weaknesses of the national
government under the Articles of Confederation that led to the drafting of a
completely new constitution in the summer of 1787.
As you read the text, consider how the government actually operated under
the Articles of Confederation. Identify the challenges that some of the
provisions of the Articles may have presented to the young country.

Published in pamphlet form in November 1787

Check Your Understanding
What about the proposed
OCTOBER 8th, 1787. Constitution troubles the Federal
Farmer?
The Federal Farmer is concerned about the
DEAR SIR,
fact that the Constitution has federal
MY letters to you last winter, on the subject of a well balanced national
features and that the states would become
government for the United States, were the result of a free enquiry; when I
passed from that subject to enquiries relative to our commerce, revenues, one government.
past administration, etc. I anticipated the anxieties I feel, on carefully Check Your Understanding
examining the plan of government proposed by the convention. It appears Circle the text where the author
to be a plan retaining some federal features; but to be the first important gives his opinion on the division
step, and to aim strongly at one consolidated government of the United of power between the national
States. It leaves the powers of government, and the representation of the government and the states.
people, so unnaturally divided between the general and state governments,
that the operations of our system must be very uncertain.

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AP U.S. Government and Politics Analytical Reading Activities

My uniform federal attachments, and the interest I have in the protection Check Your Understanding
of property, and a steady execution of the laws, will convince you, that, if Circle the two interests the Federal
I am under any bias at all, it is in favor of any general system which shall Farmer states he has.
promise those advantages.

Check Your Understanding

The instability of our laws increases my wishes for firm and steady
What are the main concerns of the
government; but then, I can consent to no government, which, in my author in these two paragraphs?
opinion, is not calculated equally to preserve the rights of all orders of Paraphrase them in the space
men in the community. My object has been to join with those who have below the paragraphs.
endeavored to supply the defects in the forms of our governments by a
steady and proper administration of them. The author is concerned that the
government is too unstable and does not
Though I have long apprehended that fraudulent debtors, and embarrassed
men, on the one hand, and men, on the other, unfriendly to republican equally preserve the rights of the people.
equality, would produce an uneasiness among the people, and prepare They are also concerned that the
the way, not for cool and deliberate reforms in the governments, but for government will make changes that
changes calculated to promote the interests of particular orders of men ...
benefits the interest of certain types of
men.

Concept Application
Why does the author believe a
federal government of some sort is
necessary?
I know our situation is critical, and it behooves us to make the best of it. A
The author believes that a federal
federal government of some sort is necessary. We have suffered the present
to languish; and whether the confederation was capable or not originally of government is needed to stabilize and
answering any valuable purposes, it is now but of little importance. unify the state in such a critical moment.

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AP U.S. Government and Politics Analytical Reading Activities

. . . A constitution is now presented which we may reject, or which we may

accept with or without amendments, and to which point we ought to direct
our exertions is the question. To determine this question with propriety; we
must attentively examine the system itself, and the probable consequences
of either step. …

Concept Application
The first principal question that occurs, is, Whether, considering Circle the words and phrases in the
our situation, we ought to precipitate the adoption of the proposed passage that describe the author’s
constitution? If we remain cool and temperate, we are in no immediate feelings about how quickly the
danger of any commotions; we are in a state of perfect peace, and in no Constitution is being put forward
danger of invasions; the state governments are in the full exercise of their for adoption.
powers; and our governments answer all present exigencies, except the
regulation of trade, securing credit, in some cases, and providing for the
interest, in some instances, of the public debts; ...

.... Check Your Understanding

The present moment discovers a new face in our affairs. Our object What is the Federal Farmer
referring to when he states, “a new
has been all along, to reform our federal system, and to strengthen our
object now presents”?
governments—to establish peace, order and justice in the community—
but a new object now presents. The plan of government now proposed is The Federal Farmer is referring to the
evidently calculated totally to change, in time, our condition as a people. proposed Constitution and it's plan of
Instead of being thirteen republics, under a federal head, it is clearly
government.
designed to make us one consolidated government.
…
Check Your Understanding
Circle what the author asserts is
the real objective of the proposed
Constitution.

precipitate: to move or act quickly, perhaps unwisely

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AP U.S. Government and Politics Analytical Reading Activities

We expected too much from the return of peace, and of course we have Connect to Content
been disappointed. Our governments have been new and unsettled; and Describe two weaknesses of the
several legislatures, by making tender, suspension, and paper money laws, Articles of Confederation, as
have given just cause of uneasiness to creditors. mentioned by the author.

By these and other causes, several orders of men in the community have The author mentions the weak
been prepared, by degrees, for a change of government; and this very suspension and paper money laws
abuse of power in the legislatures, which in some cases has been charged under the Article of Confederation.
upon the democratic part of the community, has furnished aristocratical
men with those very weapons, and those very means, with which, in great
measure, they are rapidly effecting their favorite object.
And should an oppressive government be the consequence of the proposed Academic Vocabulary
change, posterity may reproach not only a few overbearing, unprincipled How does the author use the word
men, but those parties in the states which have misused their powers. oppressive here to send a signal
about the proposed Constitution?
....
The author uses the word to send the
message that the proposed Constitution is
unfair and repressive if it is to get ratified.

Check Your Understanding

—We shall view the convention with proper respect—and, at the same Paraphrase the author’s position
time, that we reflect there were men of abilities and integrity in it, we must regarding some of the men who
recollect how disproportionately the democratic and aristocratic parts of the are arguing for change in the space
community were represented—Perhaps the judicious friends and opposers below this paragraph.
of the new constitution will agree, that it is best to let it rely solely on its
own merits, or be condemned for its own defects.

Academic Vocabulary
What does the author’s use of the
word consolidated here say about
his views on the power of the
The plan proposed appears to be partly federal, but principally however, states?
calculated ultimately to make the states one consolidated government. … He believes that the states would be very
powerful as one united government.

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AP U.S. Government and Politics Analytical Reading Activities

There are three different forms of free government under which the United Content Application
States may exist as one nation; and now is, perhaps, the time to determine The author describes three
to which we will direct our views. possible forms of government that
could be instituted. After reading
this first option, describe one way
1. Distinct republics connected under a federal head. In this case the that it is similar to, and different
respective state governments must be the principal guardians of the from, the Articles of Confederation.
peoples rights, and exclusively regulate their internal police; in them A similarity is that states still have power
must rest the balance of government. The congress of the states, or
and is in charge of protecting the rights of
federal head, must consist of delegates amenable to, and removable
by the respective states: This congress must have general directing the people. A difference is that there is a
powers; powers to require men and monies of the states; to make federal government that governs the
treaties; peace and war; to direct the operations of armies, &c. Under states.
this federal modification of government, the powers of congress would
be rather advisory or recommendatory than coercive.

2. We may do away the federal state governments, and form or Check Your Understanding
consolidate all the states into one entire government, with one How does this second option
executive, one judiciary, and one legislature, consisting of senators and connect to the author’s prior use of
representatives collected from all parts of the union: In this case there the term consolidation?
would be a compleat consolidation of the states. He uses it to suggest that this
government will be strong and more
united among the states.

Check Your Understanding

3. We may consolidate the states as to certain national objects, and
How does this third option
leave them severally distinct independent republics, as to internal compare to the first and the second
police generally. Let the general government consist of an executive, a options?
judiciary, and balanced legislature, and its powers extend exclusively to
all foreign concerns, causes arising on the seas to commerce, imports, The federal government is limited but still
armies, navies, Indian affairs, peace and war, and to a few internal has divided power with the state
concerns of the community; to the coin, post offices, weights and government.
measures, a general plan for the militia, to naturalization, and, perhaps
to bankruptcies, leaving the internal police of the community, in other
respects, exclusively to the state governments; as the administration
of justice in all causes arising internally, the laying and collecting of
internal taxes, and the forming of the militia according to a general plan
prescribed. In this case there would be a compleat consolidation, quoad
[with respect to] certain objects only.

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AP U.S. Government and Politics Analytical Reading Activities

Touching the first, or federal plan, I do not think much can be said in its Check Your Understanding
favor: The sovereignty of the nation, without coercive and efficient powers Circle the issues or problems the
to collect the strength of it, cannot always be depended on to answer the author finds with the first and
purposes of government; and in a congress of representatives of foreign second options.
states, there must necessarily be an unreasonable mixture of powers in the
same hands.
As to the second, or compleat consolidating plan, it deserves to be carefully
considered at this time by every American: If it be impracticable, it is a fatal
error to model our governments, directing our views ultimately to it.
Check Your Understanding
The third plan, or partial consolidation, is, in my opinion, the only one that Of the three discussed, which plan
can secure the freedom and happiness of this people. I once had some does the author believe would
general ideas that the second plan was practicable, but from long attention, be the most likely to “secure the
and the proceedings of the convention, I am fully satisfied, that this third freedom and happiness of this
plan is the only one we can with safety and propriety proceed upon. people”? How does he support this
conclusion?
...
The author believes that the third place
Independent of the opinions of many great authors, that a free elective
is the most efficient one, he explains
government cannot be extended over large territories, a few reflections must
evince, that one government and general legislation alone never can extend how the states will be able to make
equal benefits to all parts of the United States: Different laws, customs, and their own laws while still being united.
opinions exist in the different states, which by a uniform system of laws
would be unreasonably invaded. The United States contain about a million
of square miles, and in half a century will, probably, contain ten millions of
people; and from the center to the extremes is about 800 miles.
Before we do away the state governments or adopt measures that will tend
Check Your Understanding
to abolish them, and to consolidate the states into one entire government
Highlight or underline the
several principles should be considered and facts ascertained:—These, and
argument the author makes about
my examination into the essential parts of the proposed plan, I shall pursue
why a “consolidated” government
in my next. is not possible over a country the
Your’s, &c. size (and future size) of the United
States.
THE FEDERAL FARMER.

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AP U.S. Government and Politics Analytical Reading Activities

After You Read

Thinking Like a Political Scientist

Reasoning Process: Process

What does the author believe to be the right balance of power between the
national government and the states?
The author believes that states are able to govern their jurisdictions however they seem fit
and the federal government gets more power to stabilize and unify the states.

Based on this reading, what are your thoughts about the structural
weaknesses of the Articles?
The Articles of Confederation was poorly thought out and done. It weakened the
country and proved that it was a bad way to govern a country.

Political Science Disciplinary Practices

Concept Application
Which of the three versions of government described by the Federal Farmer
is most like the Articles? Which is most like the Constitution? Use the
Venn Diagram Below to categorize the details from his argument.

Constitution
Article of Confederations

Favored state Both look to protect the rights

Favored both state and
government of the people
federal government.
Federal government had
Wants to unify the states
little power

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AP U.S. Government and Politics Analytical Reading Activities

Making Connections
Now, think about both readings as you complete the table below.
Which challenges with the Articles of Confederation did the Constitution
resolve? How?

In Articles of Resolved in the

Issue Confederation Constitution
Amendment Process
All states needed to needed 2/3 of the house of rep. and
approve/ agree 3/4 of the states to approve/ agree

Inability to tax Federal government could

Federal government has the power to tax
not tax the states, they
could only ask for money.

Do you think the Federal Farmer’s fears of a “consolidated government”

have been realized in our government today? How might you connect that
concern to the current political debates over federalism and the proper
balance of power between the national government and the states?
I do not think it has been realized because the states still have the power to make
their own decisions within their area. Even with a federal government, the states still
have authority.

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