Delay still interfered with the opening of the assembly, which did not take place until December 15, 1545.
[Sidenote: First period, 1545-7] The council was held at three separate periods with long intervals.
The first period was 1545-7, the second 1551-2, the third 1562-3.

The city of Trent was chosen in order to yield to the demand for a German town while at the same time selecting that one nearest to Italy, for the pope was determined to keep the action of the synod under control.
Two measures were adopted to insure this end, the initiative and presidency of the papal legates and packing the membership.

The faculties to be granted the legates were already decided upon in 1544; these lieutenants were to be, according to Father Paul Sarpi, angels of peace to preside, make {391} all necessary regulations, and publish them "according to custom." The phrase that the council should decide on measures, "legatis proponentibus" was simply the constitutional expression of the principal familiar in many governments, that the legislative should act only on the initiative of the executive, thus giving an immense advantage to the latter.

The second means of subordinating the council was the decision to vote by heads and not by nations and to allow no proxies.

This gave a constant majority to the Italian prelates sent by the pope.