The fledgling government, however, set historic precedent and broad transportation policy in 1787 concerning new lands west of the original colonies in the Northwest Ordinance; it established free usage of its inland waterways and their connecting portages, and expressed this intent for any other lands and resources in future states. While some consider that Washington watched as rivalries between the states of Maryland and Virginia gradually rendered his Potomac Company null and void by withholding public monies, out of fear that a rival state might derive greater benefit from their own appropriations, others consider these events in a different light. The preliminary report of the Inland Waterways Commission issued in 1908, provides a unique topical perspective on these and other concurrent historical events on-going at the time. It notes: "The earliest movement toward developing the inland waterways of the country began when, under the influence of George Washington, Virginia and Maryland appointed commissioners primarily to consider the navigation and improvement of the Potomac; they met in 1785 in Alexandria and adjourned to Mount Vernon, where they planned for extension, pursuant to which they reassembled with representatives of other States in Annapolis in 1786; again finding the task a growing one, a further conference was arranged in Philadelphia in 1787, with delegates from all the States. There the deliberations resulted in the framing of the Constitution, whereby the thirteen original States were united primarily on a commercial basis —the commerce of the times being chiefly by water."