Washington gives this as the Confederation's reaction based on the past government that hasn't been responsive to the people which are slow and has a different purpose. He was citing that this is from one point of view could be better than the present has to offer.
Washington was trying to let the Confederation see the possibilities that the new type of government that is being introduced would also experience problems before it can be finally settled. He also gave a further situation where he could not see the success of this, instead of a rebellion from the changes that would come.
