Congress had the power to conduct foreign affairs, make treaties, declare war, maintain an army and a navy, coin money, and establish post offices upon the approval of 9 out of the 13 states. However, many of states were in constant disagreement so many of these measures were almost impossible to carry out. By mid-1780's the country was divided over such concerns as pensions for war veterans, taxes, and an inflationary paper currency. George Washington described the situation under the Articles of Confederation as "a half-starved limping government, which appears to be always moving upon crutches and tottering at every step." Because of this policy the Congress of the Confederation could not properly enforce laws or policy.