By early 1785, many influential merchants and political leaders were already agreed that a stronger central government was needed. Shortly after Shays' Rebellion broke out, delegates from five states met in Annapolis, Maryland from September 11–14, 1786, and they concluded that vigorous steps were needed to reform the federal government, but they disbanded because of a lack of full representation and authority, calling for a convention of all the states to be held in Philadelphia in May 1787. Historian Robert Feer notes that several prominent figures had hoped that the convention would fail, requiring a larger-scale convention, and French diplomat Louis-Guillaume Otto thought that the convention was intentionally broken off early to achieve this end.