That’s not the point Madison is making. It’s very clear what he was saying. He was saying that the new national government would be supreme in every significant and feasible way. He was saying it was “inexpedient” to try to eliminate state governments altogether, but it was no matter—they could leave the states with trifling duties. They would basically be subordinat administrators. And look around—that’s exactly what they are.
But the point I'm making is answered in asking "subordinate to what or whom?"