The Tholians and the RSE. There's no love lost between RSE and Federation esp. in light of the cozying up to the IRS. Oh, and the Tzenkethi are furious over the death of one of their citizens, a child "at the hands" of the Federation (regardless of how events actually played out). The Kinshaya are at war with the Klingons, and the Federation wouldn't want the Khitomer Accords to fall through again. Apart from the Gorn, it looks like a pretty hostile Pact to me. Maybe not hostile enough to declare open war, but enough to be on a Cold War footing.