He did not choose to be cried out upon as infringing the Ghent Pacification, although the whole world knew that treaty to be hopelessly annulled.

For these and many other weighty motives, he proposed that the new Union should be the apparent work of other hands, and only offered to him and to the country, when nearly completed.

January, the deputies of Gelderland and Zutfelt, with Count John, stadholder of these provinces, at their head, met with the deputies of Holland, Zealand, and the provinces between the Ems and the Lauwers, early in January, 1579, and on the 23rd of that month, without waiting longer for the deputies of the other provinces, they agreed provisionally upon a treaty of union which was published afterwards on the 29th, from the Town House of Utrecht.
This memorable document--which is ever regarded as the foundation of the Netherland Republic--contained twenty-six articles.
The preamble stated the object of the union.

It was to strengthen, not to forsake the Ghent Pacification, already nearly annihilated by the force of foreign soldiery.

For this purpose, and in order more conveniently to defend themselves against their foes, the deputies of Gelderland, Zutfen, Holland, Zealand, Utrecht, and the Frisian provinces, thought it desirable to form a still closer union.