It became evident at last that Sir Piers Butler was not strong enough to govern without Kildare's help, and Henry reverted to his father's policy of entrusting all Ireland to the man whom all Ireland could not govern. One more effort was made to reconcile the rivals by sending over royal commissioners, who prevailed upon them to make an agreement under seal as the basis of mutual concession. Kildare's stud mares had been taken by a namesake of his own, but Sir Piers covenanted to give them up if they came within his power. The subsidy payable by Tipperary to Kildare when he was Deputy was forgiven, as was half the subsidy paid by the county of Kildare to Butler during his tenure of office. In general, everyone was to behave well, to keep the peace, and not to make friends with Irish rebels.[100] [Sidenote: Arrangements for local government.] Butler and Kildare, and the principal gentlemen living on the marches of the Pale, were bound at this time to adopt a certain order in their countries, the two greater chiefs under penalties of 1,000 marks each, and the others in sums varying from 200 marks to 40_l._ They made themselves liable in general for their own acts and for those of their sons and brethren, covenanting not to use the Brehon law nor those Irish exactions which usually accompanied it, and to repress crime as far as their power reached. Kildare, on his appointment as Deputy, covenanted with the King not to make war or peace with Irishmen at the public charge without consent of the Council. This was intended to prevent another Knocktoe. Coyne and livery for the public service were to be reduced to fixed rules. Householders were to be allowed to compound by paying twopence a meal for a footman, and threehalfpence for a horseman or groom; twelve sheaves of oats for a trooper, and eight for a draught horse was to be the allowance, and not more than one boy was to accompany each horse. If the Earl travelled on private business, or on his way to attend Parliament, he was not to take coyne and livery save from his own tenants; and in no case except for the actual use of soldiers, nor for more than one night in one place, nor for successive nights within a distance of nine miles. It had been the custom to charge the farmers for 'black men,' that is, for soldiers who only existed in name and as a means of extortion. Treaties with Irishmen were not to be made to prejudice the Crown, nor were pardons to be given without the consent of the Council. The King's castles were to be kept in repair, and the Earl was to do his best to make the people of the Pale speak, dress, and shave like Englishmen. The salaries of the judges were to be paid; and Kildare promised if possible to have sheriffs, escheators, and coroners appointed in Meath, Dublin, Louth, Wexford, Kilkenny, Tipperary, and Waterford, and to provide for the holding of Quarter Sessions in due course.[101] It is noteworthy that the counties of Kildare and Cork are not mentioned, and