Nehemiah Coxe writes:
The immediate and direct end therefore, of God’s entering into covenant with man at any time (so far as concerns man himself) is the advancing and bettering of his state. God never made a covenant with man in which his goodness to him was not abundantly manifest. Yes, such is his infinite bounty that he has proposed no lower end to his covenant transactions with men than to bring them into a blessed state in the eternal enjoyment of himself. And therefore, when one covenant (through the weakness of man in his lapsed state) has been found weak and unprofitable as to this great end of a covenant because insufficient to accomplish it, God finds fault, abolishes it, and introduces another in which full provision is made for the perfect salvation of those that have interest in it (Hebrews 8:7, 8).
Now that we know what a covenant is, let us delve into the covenants of which the Bible speaks.
We begin our study of the covenants with the Covenant of Works because that is the way our Confession starts this chapter. Some may be searching for the phrase "Covenant of Works" in paragraph 1 or the whole chapter. You won't find it. But that does not mean that the concept of the Covenant of Works is not here. A few reasons may be given as to why the Confession does not use the phrase "covenant of works" in this chapter, while the sister confessions do. First of all, if we compare the title of the chapter, in the Westminster and Savoy confessions we have "Of God's Covenant with Man", while in the 1689 we have "Of God's Covenant." The 1689 focuses on the revelation and establishment of the Covenant of Grace, while the others treat God's covenants from the beginning and not only focusing upon the Covenant of Grace. The 1689 "concentrates on the covenant of grace and either assumes or implies the covenant of works, making its explicit mention superfluous." The fact that the Confession by its omission is not denying the doctrine of the Covenant of Works is seen in that it is both explicitly (19:6 [2x]; 20:1) as well as implicitly (6:1; 19:1) implied elsewhere:
19:6 Although true believers be not under the law as a covenant of works, to be thereby justified or condemned, yet it is of great use to them as well as to others, in that as a rule of life, informing them of the will of God and their duty, it directs and binds them to walk accordingly; discovering also the sinful pollutions of their natures, hearts, and lives, so as examining themselves thereby, they may come to further conviction of, humiliation for, and hatred against, sin; together with a clearer sight of the need they have of Christ and the perfection of his obedience; it is likewise of use to the regenerate to rest...