It was a difficult task, since the eastern provinces were afraid (and not unjustly) that its much greater wealth would give Holland predominance in the proposed confederation.

Nevertheless it was accomplished, and an Act of Union was drawn up and signed at Utrecht, January 29, 1579, by the representatives of Holland, Zeeland, the town and district (_sticht_) of Utrecht, Gelderland and Zutphen, by which they agreed to defend their rights and liberties and to resist all foreign intervention in their affairs by common action as if they were one province, and to establish and maintain freedom of conscience and of worship within their boundaries.

William does not seem at first to have been altogether pleased with his brother's handiwork.

He still hoped that a confederation on a much wider scale might have been formed, comprising the greater part of those who had appended their signatures to the Pacification of Ghent.

It was not until some months had passed and he saw that his dreams of a larger union were not to be realised, that he signed, on May 3, the Act of Union drawn up at Utrecht.