Board Thread:Rewatching "Merlin" - Season Two/@comment-5102537-20130713192800/@comment-5674726-20130714142529

Maybe the Five Kingdoms were the biggest/most powerful, while the likes of Caerleon, Nemeth, Gawant, Mercia and Essetir were smaller and weaker. Uther may have wanted to secure peace with the sharks before looking to include the minnows in a pan-Albion peace treaty that he didn't live to see realised. At this point, he already had peace with Caerleon, Mercia and Essetir, and Godwyn was a dear friend. The treaty with the Five Kings may only have been Phase 1.