In order to carry out their policy, James and Tyrconnel saw that an Irish Parliament would have to be called, and one of a very different character from the last. There were thirty-two counties, in each of which the freeholders were entitled to return two members, and one hundred cities and boroughs where two members were eligible by the burgesses. In the counties Government could generally maintain itself through subservient sheriffs, and it was resolved to attack the charters in virtue of which the boroughs existed. The process of transforming the municipalities by prerogative alone began as early as June 1686, when Tyrconnel brought over a letter from the King directing the Lord Lieutenant to admit freemen without tendering the oath of supremacy. Even the English oath of allegiance was thought too strict, and he was ordered to be satisfied with a shorter oath of fidelity. Acting by the advice of Judge Daly and other reasonable Roman Catholic Privy Councillors, Clarendon aimed at appointing English and Irish in equal numbers, 'which they say is the best way to unite and make them live friendly together.' Had this wise course been persevered in, an understanding might have been arrived at, but Tyrconnel's faction thought the mere fact of being a Roman Catholic was qualification enough for anything. As it was, all who could make out any sort of hereditary claim were accepted as freemen, though they did not live in the towns and were engaged in no trade or business.[161] Those who were encouraging James to take extreme measures tried to make out that most Irish Protestants were Cromwellian fanatics or their descendants. Clarendon said that there were not many adventurers or soldiers, nor many of their children remaining. Land had been freely bought by men who wanted to make fortunes by buying in a cheap market. These new purchasers and the representatives of settlers before 1640 formed the bulk of the colony, six-sevenths of the trade being in their hands. They had hitherto had things much their own way, but it was now determined to humble them to the dust. By the statutory rules made under Essex, every mayor or other municipal officer was required to take the oath of supremacy, but might be dispensed from so doing by name and in writing by the Lord Lieutenant and Council. The result of these rules had been to keep the Protestants in power, though the Roman Catholics, scattered for the most part in the country, but claiming the hereditary freedom of old towns, were more numerous. Corporations of recent origin had been the creation of the colonists, and had always been in Protestant hands. The changes made by Clarendon were considerable, but the process was too slow for a man of James's temper. In August he summoned Tyrconnel to meet him at Chester. The King was attended by Sunderland, and the Deputy by Nagle, Rice, William Ellis, and a Jesuit named Johnson. Richard Hamilton was also at Chester.