In England the government rests in the House of Commons; in Germany it is in the Federal Council, and for the same reason--that the Council has both executive and legislative power.
Constitutions have generally been made by men whose chief object was to weaken the power of the Government, who believed that those rulers do least harm who have least power, with whom suspicion is the first of political virtues, and who would condemn to permanent inefficiency the institutions they have invented.

It was not likely Bismarck would do this.

The ordinary device is to separate the legislative and executive power; to set up two rival and equal authorities which may check and neutralise each other.

Bismarck, deserting all the principles of the books, united all the powers of government in the Council.

The whole administration was subjected to it; all laws were introduced in it.