He was directed to cause the confused government of the Provinces to be redressed, and a better form of polity to be established.

He was ordered, in particular, to procure a radical change in the constitution, by causing the deputies to the General Assembly to be empowered to decide upon important matters, without, as had always been the custom, making direct reference to the assemblies of the separate Provinces.

He was instructed to bring about, in some indefinite way, a complete reform in financial matters, by compelling the States-General to raise money by liberal taxation, according to the "advice of her Majesty, delivered unto them by her lieutenant." And how was this radical change in the institutions of the Provinces to be made by an English earl, whose only authority was that of commander-in-chief over five thousand half-starved, unpaid, utterly-forlorn English troops?
The Netherland envoys in England, in their parting advice, most distinctly urged him "to hale authority with the first, to declare himself chief head and governor-general" of the whole country,--for it was a political head that was wanted in order to restore unity of action--not an additional general, where there were already generals in plenty.

Sir John Norris, valiant, courageous, experienced--even if not, as Walsingham observed, a "religious soldier," nor learned in anything "but a kind of licentious and corrupt government"-- was not likely to require the assistance of the new lieutenant-general in field operations nor could the army be brought into a state of thorough discipline and efficiency by the magic of Leicester's name.

The rank and file of the English army--not the commanders-needed strengthening.