George Bancroft, appointed Secretary of the Navy in 1845, decided to work outside of congressional approval and create a new academy for officers. He formed a council led by Commodore Perry to create a new system for training officers, and turned the old Fort Severn at Annapolis into a new institution which would be designated as the United States Naval Academy in 1851. Midshipmen studied at the Academy for four years and trained aboard ships each summer. Midshipman began to mean "passed midshipman" at this time, and a student at the Naval Academy was a cadet midshipman. The rank of ensign was created in 1862, and passed midshipmen were promoted to ensign when vacancies occurred.