Davison experienced great inconvenience and annoyance before the definite
arrangements could be made. There is no doubt that the Spanish party had
made great progress since the fall of Antwerp. Roger Williams was right
in advising the Queen to deal" roundly and resolutely" with the States,
and to "sovereign them presently."

They had need of being sovereigned, for it must be confessed that the
self-government which prevailed at that moment was very like no
government. The death of Orange, the treachery of Henry III., the
triumphs of Parma, disastrous facts, treading rapidly upon each other,
had produced a not very unnatural effect. The peace-at-any-price party
was struggling hard for the ascendancy, and the Spanish partizans were
doing their best to hold up to suspicion the sharp practice of the
English Queen. She was even accused of underhand dealing with Spain,
to the disadvantage of the Provinces; so much had slander, anarchy, and
despair, been able to effect. The States were reluctant to sign those
articles with Elizabeth which were absolutely necessary to their
salvation.

"In how doubtful and uncertain terms I found things at my coming hither,"
wrote Davison to Burghley, "how thwarted and delayed since for a
resolution, and with what conditions, and for what reasons I have been
finally drawn to conclude with them as I have done, your Lordship may
perceive by that I have written to Mr. Secretary. The chief difficulty
has rested upon the point of entertaining the garrisons within the towns
of assurance, over and besides the five thousand footmen and one thousand
horse."

This, as Davison proceeded to observe, was considered a 'sine qua non'