Of course, the landlords aren't the only ones messing with Ireland's mojo. But in A Modest Proposal, they stand for disinterested readers who stand idly by while their countrymen starve. They'd just as soon eat babies than chip in some cash.
And we can't forget England, the not-so-beloved mother country. Swift is mad at the rich Irish people, but he's also saying, "Hey! At least we're all part of the same nation." Swift doesn't feel the need to play nice with England. Their money-grubbing policies have caused many of Ireland's problems, and yet they refuse to help out.