In discussing his ironic proposal--that people should solve their social and economic woes by eating the children of the poor--the speaker alludes to several countries:
First, he addresses the proposal specifically to his fellow citizens of Ireland, saying that his solution will ease Ireland's longstanding and pervasive struggles:
"For preventing the children of poor people in Ireland, from being a burden on their parents or country, and for making them beneficial to the publick."
Second, he often alludes to the tensions between Ireland and England, which is important because we need to understand that this entire satirical essay is a critique of how England isn't helping Ireland with their social and financial issues (and how Ireland isn't helping itself, either).
The speaker mentions "the Pretender" twice, meaning King James Francis Edward Stuart, so called because he made a pretty weak claim to the British crown. The speaker talks about what happens to poor babies born to poor mothers: they "either turn thieves for want of work, or leave their dear native country, to fight for the Pretender in Spain." He mentions this "Pretender" again in reference to the poor members of society who keep on having babies, "who stay at home on purpose with a design to deliver the kingdom to the Pretender." In both cases, the speaker is criticizing not just the British king but also Irish society's relationship with him.
The Irish-British tensions are conveyed even more strongly toward the end of the essay, when the speaker claims that the proposal should be totally acceptable to England:
"I fortunately fell upon this proposal, which, as it is wholly new, so it hath something solid and real, of no expence and little trouble, full in our own power, and whereby we can incur no danger in disobliging England."
Third, in developing his authoritative, cold voice and tone, the speaker mentions authorities living in other countries who would support the cannibalism the speaker is proposing. Three examples are below:
A. An American authority who lives in London, England:
"I have been assured by a very knowing American of my acquaintance in London, that a young healthy child well nursed, is, at a year old, a most delicious nourishing and wholesome food, whether stewed, roasted, baked, or boiled; and I make no doubt that it will equally serve in a fricasie, or a ragoust."
This American is mentioned again: "...for as to the males, my American acquaintance assured me from frequent experience, that their flesh was generally tough and lean, like that of our school-boys..."
B. A French authority:
"...for we are told by a grave author, an eminent French physician, that fish being a prolifick dyet, there are more children born in Roman Catholick countries about nine months after Lent, the markets will be more glutted than usual..."
C. A Taiwanese authority (Taiwan used to be called "Formosa"):
"...this expedient was put into his head by the famous Salmanaazor, a native of the island Formosa, who came from thence to London, above twenty years ago, and in conversation told my friend, that in his country, when any young person happened to be put to death, the executioner sold the carcass to persons of quality, as a prime dainty..."
Fourth, the speaker makes some ugly allusions to other nations as well as to Jews. Let's have a look:
"Of learning to love our country, wherein we differ even from Laplanders, and the inhabitants of Topinamboo: Of quitting our animosities and factions, nor acting any longer like the Jews, who were murdering one another at the very moment their city was taken..."
Though Lapland is a real region, "Topinamboo" seems to be a term that the speaker is using to refer to a native tribe residing in Brazil.
By understanding how all these references to different countries come together, we can better place "A Modest Proposal" in a historical and geographical context.
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