The history of the Elizabethan Prayer-Book is confessedly obscure. If an important paper called the _Device_,[551] probably drafted by Cecil, embodied the intentions of the Government, their procedure may be guessed with some probability. It enumerates carefully, after the manner of the great Elizabethan statesman, the dangers involved in any "alteration of religion," and shows how they can be met or averted. France and Scotland can be treated diplomatically. Rome may be left unheeded--it is far away, and its opposition will not go beyond "evil will and cursing." The important dangers were at home. They would come from two sides--from the Romanists backed by most of the higher clergy; and from the advanced Reformers, who would scoff at the alteration which is alone possible in the condition of the kingdom, and would call it a "cloaked papistry and a mingle-mangle." Yet both may be overcome by judicious firmness. The Romanists may be coerced by penal laws. The danger from the advanced Reformers may be got over by a carefully drafted Prayer-Book, _made as far as possible to their liking_, and enforced by such penalties as would minimise all objections. There is great hope that such penalties would "touch but few." "And better it were that they did suffer than Her Highness or Commonwealth should shake or be in danger." The _Device_ suggested that a small committee of seven divines--all of them well-known Reformers, and most of them refugees--should prepare a Book "which, being approved by Her Majesty," might be laid before Parliament. It was evidently believed that the preparation of the Book would take some time, for suggestion is made that food, drink, wood, and coals should be provided for their sustenance and comfort. There is no direct evidence to show that the suggested committee met or was even appointed; but evidence has been brought forward to show that most of the theologians named were in London, and were in a position to meet together and consult during the period when such a Book would naturally be prepared.[552] The whole matter is shrouded in mystery, and secrecy was probably necessary in the circumstances. No one knew exactly what was to take place; but some change was universally expected. "There is a general expectation that all rites and ceremonies will shortly be reformed," said Richard Hilles, writing to Bullinger in the end of February (1559), "by our faithful citizens and other godly men in the afore-mentioned Parliament, either after the pattern which was lately in use in the time of King Edward the Sixth, or which is set forth by the Protestant Princes of Germany in the afore-mentioned Confession of Augsburg."[553]