In "A Modest Proposal", who is Swift directing his proposal too?

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The proposal is directed at both the Irish, who appear to have more children than they can properly care for, with regard to feeding them and clothing them.  And he is also directing his suggestion at the English who are stripping Ireland of their resources, which results in the Irish people struggling to survive on very little.  All the good crops are shipped to Ireland for the English.

So Ireland has an overpopulation problem, and England needs more food for their rich class.  So Swift suggests that the children of the poor be fattened and sold at market as food for the rich of England.  Thereby solving two problems at once, addressing the overpopulation and balancing trade with England.  

"Far from being horrified by this suggestion, as the reader surely is, the speaker continues to imagine himself as a disinterested patriot offering his countrymen a practical and almost miraculously effective way to reduce poverty, overpopulation, and an unfavorable balance of trade with England."

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