[Sidenote: Cecil's projects for Ireland.]
When Sidney had been some months in England, Cecil drew up an elaborate scheme for the future government of Ireland, which may probably be taken as embodying the joint opinions of these two great men. It is interesting to test their value by the light of subsequent events, but it must not be forgotten that neither Sidney nor Cecil had often their own way for long. The Queen habitually deferred to her Ministers, but when unwilling to do this, she always had her own way, and circumstances, which even the strongest cannot always control, will modify the wisest policy. That Cecil understood the question well will hardly be disputed by those who study the document now under consideration. He proposed that a Parliament should be held without delay, which should declare the Crown entitled to Ulster, and provide for its division into shires, after a survey had been made. The great object was to prevent a new local tyranny from being established. Civilised men should be encouraged to settle in the North, especially those of Irish birth, 'for it is supposed that they may better maintain their habitation with less charge than such Englishmen as are mere strangers to the land.' No tenant was to be subject to rent except on condition of full protection. A residence for the Deputy should be provided at Armagh, and in his absence a soldier of rank, if possible the Vice-Treasurer, Marshal, or Master of the Ordnance, was to fill his place, and to govern with the help of a permanent council. It was hoped that the levies which O'Neill formerly commanded might be made available for her Majesty's service. To hold the country there were to be forts at Fathom, near Newry, at Castleblayney, at a bridge to be thrown over the Blackwater between Armagh and Lough Neagh, at a point on the shore of the great lake, and at Toome, near the efflux of the Ban. At Coleraine there was to be a fortified bridge. The coast of Antrim was to be guarded against the Scots by forts at Portrush and at some point between Fair Head and Larne. In the work of protecting Belfast, Lough Carrickfergus was to have the help of a strong post at Bangor. Belfast itself, and a fort at Massareene Abbey, on the eastern shore of Lough Neagh, were to complete the chain. Besides the bridges at Coleraine and Blackwater, it was proposed to throw one over the Erne at Ballyshannon and another over the Foyle at Lifford. Munster was to have a President and Council resident at Dungarvan, the parsonage of which, by a singular provision, was to be attached to the Presidency. A similar government for Connaught was to be placed at Athlone; Galway, Roscommon, and Balla being named as assize towns. Tyrconnel is treated as in some degree separate both from Connaught and from Ulster; O'Connor Sligo being freed from all subjection to O'Donnell, in consideration of his voluntary submission to the Queen, and on condition of his accepting of an estate of inheritance. To bind O'Connor faster, he was allowed to preserve the friary at Sligo, in which his ancestors were buried, substituting secular canons for Dominicans, a condition which was probably never fulfilled. O'Donnell thought all this very hard measure, observing that no O'Connor had ever served the Crown but by compulsion of his own ancestors. The lands adjoining castles in charge of constables were not to be farmed out, but kept always in hand for their support. Such was Cecil's scheme after the fullest conference with Sidney, and, if we except that matter of Dungarvan parsonage, we must acknowledge that it shows a pretty accurate appreciation of the Irish problem.[136]