It left out of "Ulster" the three counties, Donegal, Cavan and Monaghan, in whose eight constituencies no Unionist had been returned since 1885.

But it left to the excluded area the counties of Tyrone and Fermanagh, each with a Nationalist majority, and the boroughs of Newry and Londonderry, both represented by Home Rulers.
This was a provision which no body of men could be expected to acquiesce in permanently as representing the equity of the case.

It was accepted for the sake of peace, as a temporary expedient.

A strong inducement was added by Mr.Lloyd George's proposal that at the close of the provisional period the whole matter should be referred to a Council of the Empire with the Prime Ministers of the Dominions taking a hand in the settlement.

But to guarantee and seal its provisional and transitory character an extraordinary clause was added.