There were five different sources of authority with which he had to deal: the President of the Federation (the Emperor), who was King of Prussia, the Council, the Prussian Parliament, the German Parliament, and the Prussian Ministry.

Now in the Council he presided, and also represented the will of Prussia, which was almost irresistible, for if the Constitution was to work well there must be harmony of intention between Prussia and the Federal Government; here therefore he could generally carry out his policy: but in the Prussian Ministry he spoke as sole Minister of the Federation and the immense authority he thus enjoyed raised him at once to a position of superiority to all his colleagues.

More than this, he was now free from the danger of Parliamentary control; it was easier to deal with one Parliament than two; they had no _locus standi_ for constitutional opposition to his policy.

The double position he held enabled him to elude all control.

Policy was decided in the Council; when he voted there he acted as representative of the King of Prussia and was bound by the instructions he received from the Prussian Minister of Foreign Affairs; the Reichstag had nothing to do with Prussian policy and had no right to criticise the action of the Prussian Minister.