Can a player with no presence in York, Carlisle, Berwick, or Scotland elect to play this card as an event--i.e. elect to empower one of the qualifying players to use its power?
As both options on this card start with the phrase "Only playable by" there is no way for a power that doesn´t qualify to play the card.
Note: This may differ from other cards like 49/Conquest of the Phillippines" that state "Add a Spanish control maker" with no condition for the playing power. Those cards can be negotiated to play in behalf of an other power.