In spite of the pacification at La Rochelle and the fall of Sancerre, the Midi still resisted. In Languedoc and Dauphiné the Huguenots were especially strong.[1569] Their harvests were garnered into walled towns; their army included 2,000 arquebusiers besides the Huguenot gentry and they were well prepared for further war.[1570] On the anniversary of the massacre (August 24, 1573) deputies of all the churches of the south convened at Montauban and took the preliminary steps in the formation of the great Huguenot confederation which in December assumed the direction of the war, the regulation of finances, civil administration, and religious protection.[1571] Languedoc was divided into two governments with Montauban and Nîmes as centers under the authority of the viscounts of Paulin and St. Romain, each assisted and controlled by a council. The councils, in turn, in all important matters were required to consult the local assemblies of Protestants. All these assemblies were elective. The Protestant organization thus constituted an all but full-fledged state within a state, asserting its own power to lay taxes, to administer justice, to carry on war, and to make peace. It was estimated that 20,000 men in these regions were able to bear arms. In consequence of the continuance of the war in the south the Swiss and the rest of the soldiery not yet licensed were sent from the camp before La Rochelle into Dauphiné and Languedoc. But the government was heavily embarrassed financially and had been compelled to resort to forced loans in Paris and the old shift of mortgaging the revenue until the grant of the clergy was made in June.[1572] Even then it did not urge war. Charles IX, jealous of the Guises and of the military reputation which his brother had acquired, was again manifesting his hatred of the restraint imposed upon him, and desirous of recovering his independence. The tendency of France was to return to its earlier policy which had been interrupted by the massacre.[1573] Charles again inclined to sustain Holland in its rebellion against Spain,[1574] at least underhandedly. To strike Spain was at the same time to strike at all the influences which he hated. Accordingly France made overtures anew to the prince of Orange, although it was not without repugnance that William of Orange brought himself to listen to them.[1575] But the voice of policy was stronger than sentiment.[1576] For on December 11, 1572, the famous siege of Haarlem had begun. It was Alva’s purpose by the capture of this city to cut the communications between south Holland, where the prince of Orange was, and north Holland.[1577]