I figured they did it for balancing, but I would still love to see, in a future release perhaps, the ability to offer a pact to more than one. Your concern that you would get a bonus for every pact - I would address by only getting the bonus once, even if I've offered it to more than one person. In other words, it wouldn't stack. The only person who would be affected by a second, or third pact offering is the person being offered the pact (not you).
So I would offer the Supply pact, for example, and both my ally and I would benefit. Later, I would offer it to another ally and he would then benefit. That way, your entire alliance can reap the benefits. Like I said, when four of us (an even number) play, it's not a big deal.
This really isn't a huge deal, but I wouldn't mind seeing them tweak this down the road.