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' by the States, so that, under the perilous circumstances in which both countries were placed, he had felt it his duty to go forward as far as possible to meet their demands. Davison always did his work veraciously, thoroughly, and resolutely; and it was seldom that his advice, in all matters pertaining to Netherland matters, did not prove the very best that could be offered. No man knew better than he the interests and the temper of both countries. The imperious Elizabeth was not fond of being thwarted, least of all by any thing savouring of the democratic principle, and already there was much friction between the Tudor spirit of absolutism and the rough "mechanical" nature with which it was to ally itself in the Netherlands. The economical Elizabeth was not pleased at being overreached in a bargain; and, at a moment when she thought herself doing a magnanimous act, she was vexed at the cavilling with which her generosity was received. "'Tis a manner of proceeding," said Walsingham, "not to be allowed of, and may very well be termed mechanical, considering that her Majesty seeketh no interest in that country--as Monsieur and the French King did--but only their good and benefit, without regard had of the expenses of her treasure and the hazard of her subjects' lives; besides throwing herself into a present war for their sakes with the greatest prince and potentate in Europe. But seeing the government of those countries resteth in the hands of merchants and advocates--the one regarding profit, the other standing upon vantage of quirks--there is no better fruit to be looked to from them."