We have then the Council and the Parliament, and we must now enquire as to their duties.

In nearly every modern State the popular representative assembly holds the real power; before it, everything else is humbled; the chief occupation of lawgivers is to find some ingenious device by which it may at least be controlled and moderated in the exercise of its power.

It was not likely that Bismarck would allow Germany to be governed by a democratic assembly; he was not satisfied with creating an artificial Upper House which might, perhaps, be able for one year or two to check the extravagances of a popular House, or with allowing to the King a veto which could only be exercised with fear and trembling.

Generally the Lower House is the predominant partner; it governs; the Upper House can only amend, criticise, moderate.

Bismarck completely reversed the situation: the true government, the full authority in the State was given to the Council; the Parliament had to content itself with a limited opportunity for criticism, with the power to amend or veto Bills, and to refuse its assent to new taxes.