The tallow candles flickered in the maester's room. After listening to Eddard's plan, Maester Luwin shook his head and sighed.
"My lord, it's a fine wish, but Winterfell Town will never develop into a city like White Harbor. White Harbor controls the mouth of the White Knife River, which penetrates deep into the heart of The North. Every day, ships bring furs, timber from the Wolfswood, and various foods to White Harbor from the upper reaches of the White Knife River. Ships from the south bring grain and honey from Highgarden, gold from the Westerlands, and fruits from the Vale. Ships from across the Narrow Sea bring spices and jewels from foreign lands."
"White Harbor is the mouth of The North. When Winter comes, the residents of Winterfell Town huddle by the hearth, shivering, but White Harbor can continue to operate thanks to its ice-free harbor. White Harbor was able to become the youngest city in the Seven Kingdoms because of its geography, the wealth of the Manderly Family, and nearly a thousand years of careful management. Winterfell Town lacks all of these."
Eddard looked at the map of The North on the table, his gaze fixed on Winterfell Town.
"I know that cultivating a town into a city is a long process, but one must take the first step. When Winterfell Town can attract enough residents, I will bring my people and begin large-scale construction."
Maester Luwin stroked his chain and gave a wry smile. "My lord, I fear your first step will fail. Summer has already entered its sixth year, and The North has seen multiple bountiful harvests. Just this month, another harvest was completed. They have more than enough food. What reason would they have to leave their homes and come to Winterfell Town?"
"Winter is their only reason to come to Winterfell Town. It has been so for thousands of years, and it will continue to be so."
In the evening, during dinner, Arya and Sansa sat on either side of Eddard, while Theon, Robb, Bran, and Jon sat opposite. Eddard told the children about his plan.
Sansa was excited. "Father, will there be singers when Winterfell Town gets lively?" Sansa had always loved ballads and singers.
Arya scoffed, "I don't care about singers. Father, will there be a circus?"
Eddard smiled, "I believe so."
Robb made a face. "Father, when Winterfell Town is more populated, we should form a city guard, just like the Gold Cloaks in King's Landing. Then Jon and Theon and I can lead the guard and maintain peace in the town."
Theon stuffed a piece of beef into his mouth. "Need a city guard? These bumpkins can protect themselves. Besides, they're all poor, and their daughters are mostly ugly. Who would want to bother with them?"
Jon looked at Theon with disgust. "Winterfell should protect every citizen of The North."
Eddard patted Jon's head. "Once my invitations go out, the houses in Winterfell Town will probably be full. Don't worry, Jon, we will protect these people."
Maester Luwin sent out ravens, and Eddard dispatched cavalry directly to the nearby estates, inviting the people of Serwyn's Town, House Tallhart's Torrhen's Square, Hornwood, and other places to settle in Winterfell Town.
The first day, three families came, a total of 21 people. Then the numbers dwindled, and by the fourth day, no one came at all.
Walking along the empty streets of Winterfell Town, Eddard was frustrated.
"How could this be?"
Maester Luwin, who was by his side, said, "My lord, I told you long ago, unless Winter is coming, those people would rather stay at home, guarding their granaries and basking in the sun. Perhaps, my lord could send someone to investigate among the common folk."
"No, I'll go myself."
The next day, Eddard changed into a dirty leather jerkin, hiding his face with a hood, and disguised himself as a wandering knight. He rode away from Winterfell.
Eddard arrived at a village. He vaguely remembered that this was Serwyn's territory. Eddard saw a middle-aged man tilling the land. The farmer had just finished the harvest and was starting to plow again.
Eddard dismounted, "Friend, I need to ask you for directions. How do I get to Winterfell Town?"
The middle-aged man had a head of messy brown hair and a stubbly beard. He sized up Eddard.
"Head north along the Kingsroad. What do you do?"
"I'm a wandering knight, looking for work in Winterfell Town. I heard the Duke of Winterfell is inviting people to settle there. Maybe I could even buy a house and some land."
The middle-aged man revealed a mouthful of rotten teeth and chuckled. "Listen to me, don't go. Winterfell Town is only lively in winter. It's summer now. Lord Eddard inviting people to settle there probably just wants free labor! These noble lords treat us like cattle. I'd rather stay here and farm."
Eddard frowned. "It's inevitable for lords to conscript people. Isn't it the same for you if you stay here?"
The middle-aged man wiped the sweat from his brow and leaned closer to Eddard.
"It's still more comfortable at home. Our Lord Serwyn here is a good man. He turns a blind eye when we sneakily hunt a wild boar or a deer in the woods. Try doing that in Winterfell Town, in the Wolfswood? It's right next to Winterfell. There are so many people in Winterfell Town, and so many eyes. If you get reported, you'll either lose a hand or be sent to The Wall, and wear black."
"I know a guy, from the next village over. Last winter, he went hunting in the Wolfswood in Winterfell Town. He was caught poaching a wild boar by Winterfell soldiers. He begged, but they still sent him to The Wall."
"Going to Winterfell Town is just farming. I farm here too, and I can sneakily hunt some game. Here, I pay taxes to Lord Serwyn. In Winterfell Town, I pay taxes to Duke Eddard. What's the difference? There are so many outsiders in Winterfell Town; I'm not going!"
Eddard sat in his study, facing Maester Luwin.
"It seems I need to offer some compelling incentives to draw people to settle in Winterfell Town. Here's the plan, Maester Luwin. I want you to send out word that for 100 copper pennies, anyone can purchase a house and an acre of land in Winterfell Town. They'll gain usage rights after cultivating the barren land for five consecutive years. And during each harvest season, Winterfell will open the Wolfswood to the residents of Winterfell Town for a month of hunting."
The wild boars in Wolfswood had become a problem lately, so opening it up for hunting during harvest wouldn't be much of a loss, Eddard figured.
Four-fifths of the houses in Winterfell Town were currently vacant. Most of these properties belonged to Winterfell. During the winter, many people who came to Winterfell Town to stay chose to rent houses. The rent was only a tenth of what a regular inn would charge, and they'd leave when spring arrived.
The maintenance costs for these houses were staggering, and they didn't bring in much rent during the crowded winter months. Eddard decided to sell them at a low price to attract residents.
Maester Luwin smiled. "Such prices, along with the right to hunt during harvest, should certainly attract some settlers."
Eddard stood up. "Maester Luwin, tell my people that once all the houses are sold, there won't be any empty houses in Winterfell Town for those who don't come.
Tell them that once the houses are distributed, Winterfell Town will no longer accept new members, and when winter comes, they'll have to fend for themselves."