it. He must, however, annually call the Houses together between November 1 and the middle of January, and cannot adjourn them for a longer period than thirty days, nor more than once during a session, except with their own consent. Without the assent of the diet he cannot make treaties with foreign countries nor rule over foreign territory. He has no independent legislative power, except so far as this is implied in his right to provide for the execution of the laws, and, when the diet is not in session, in case the preservation of the public safety or any uncommon exigency urgently demands immediate action. All such acts, however, must, at the next session of the Houses, be laid before them for approval.
The ministry consists of nine members, under the presidency of the minister of foreign affairs; besides him are the ministers of finance, of war, of justice, of worship (religious, educational, and medicinal affairs), of the interior (police and statistical affairs), of trade and public works (post office, railroad affairs, etc.), of agricultural affairs, and of the royal house (matters relating to the private property of the royal family). The supervision exercised by the ministry over the various interests of the land is much more immediate and general than that of the President's cabinet in the United States. Now, however, their authority in these matters is of course conditioned by the constitution and the laws. The ministers are allowed to enter either House at pleasure, and must always be heard when they wish to speak. On the other hand, either House can demand the presence of the ministers.
The legislative power is vested in the king and the two Houses of Parliament. The consent of all is necessary to the passing of every law. These Houses (at first called First and Second Chambers, now House of Lords and House of Delegates—Herrenhaus and Abgeordnetenhaus) must both be convoked or prorogued at the same time. In general a law may be first proposed by the king or by either of the Houses. But financial laws must first be discussed by the House of Delegates; and the budget, as it comes from the lower to the upper House, cannot be amended by the latter, but must be adopted or rejected as a whole.
The House of Lords is made up of various classes of persons, all originally designated by the king, though in the case of some the office is hereditary. They represent the nobility, the cities, the wealth, and the learning of the land. Each of the five universities furnishes a member. The king has the right to honor any one at pleasure, as a reward for distinguished services, with a seat in this body. Of course, as the members hold office for life, and hold their office by the royal favor, it may generally be expected to be a tolerably conservative body, and to vote in accordance with the wishes of the king.
The House of Delegates consists of three hundred and fifty-two members, elected by the people, but not directly. They are chosen, like our Presidents, by electors, who are directly chosen by the people. Two hundred and fifty inhabitants are entitled to one elector. Every man from the age of twenty-five is allowed to vote unless prohibited for specific reasons. But strict equality in the right of suffrage is not granted. The voters of each district are divided into three classes, the first of which is made up of so many of the largest taxpayers as together pay a third of the taxes; the second, of so many of the next richest as pay another third; the last class, of the remainder. Each of these divisions votes separately, and each elects a third part of the electors. The House of Delegates is chosen once in three years, unless in the mean time the king dissolves it, in which case a new election must take place at once.
As to the rights of Prussians in general, the constitution provides that all in the eye of the law are equal. The old distinctions of classes still exists: there are still nobles, with the titles prince, count, and baron; but the special privileges which they formerly enjoyed are not secured to them by the constitution. The king can honor any one with the rank of nobility; but the name is the most that can be conferred. In most cases the right of primogeniture does not prevail, so that the aristocracy of Prussia is of much less consequence than that of England. The poverty which so often results from the division of the estates of nobles has led to the establishment of numerous so-called Fräuleinstifter—charitable foundations for such a support of poor female members of noble families as becomes their rank. Many of these institutions were formerly nunneries. It is further provided by the constitution that public offices shall be open to all; that personal freedom and the inviolability of private property and dwellings shall be secured; that all shall enjoy the right of petition, perfect freedom of speech, the liberty of forming organizations for the accomplishment of any legal object; that a censorship of the press can in no case be exercised, and that no limitation of the freedom of the press can be introduced except by due process of law; that civil and political rights shall not be affected by religious belief, and that the right of filling ecclesiastical offices shall not belong to the state. Only 'in case of war or insurrection, and of consequent imminent danger,' has the Government a right to infringe on the above specified immunities of the citizens and the press.
The foregoing is all that need be given in order to convey a general idea of what the Prussian constitution is. It is in its provisions so specific and clear, that one would hardly expect that disputes respecting its meaning could have reached the height of bitterness which has characterized discussions of its most fundamental principles. The explanation of this fact is to be sought in the mode of the introduction of the constitution itself. The English constitution has been the growth of centuries; the Prussian, of a day. The latter, moreover, was not, like ours, the fundamental law of a new nation, but a constitution designed to introduce a radical change in the form of a government which, during many centuries, had been acquiring a fixed character. It undertook to remodel at one stroke the whole political system. Not indeed as though there had been no sort of preparation for this change. The general advance in national culture, the general anticipation of the change, as well as the actual approaches toward it in the administrative measures of Frederick the Great and Frederick William III., paved the way for the introduction of a popular element in the Government. Nevertheless, the actual, formal introduction itself was sudden. The constitution was not, in the specific form which it took, the result of experience and experiment. And, as all history shows, attempts to fix or reconstruct social systems on merely theoretical principles are liable to fail, because they cannot foresee and provide for all the contingencies which may interfere with the application of the theories. Moreover, in the case of Prussia, as not in that of the United States, the constitution was not made by the people for themselves, but given to them by a power standing over against them. There was, therefore, not only a possibility, as in any case there might be, that the instrument could be variously interpreted on account of the different modes of thinking and difference of personal interests, which always affect men's opinions; but there was here almost a certainty that this would be the case on account of the gulf of separation which, in spite of all the bridges which often are built over it, divides a monarch, especially an absolute, hereditary monarch, from his subjects. In the case before us, it is certain that the king conceded more than he wished to concede, and that the people received less than they wished to receive. That they should agree in their understanding of the constitution is therefore not at all to be expected. The most that the well wishers of the land could have hoped was that the misunderstandings would not be radical, and that in the way of practical experience the defects of the constitution might be detected and remedied, and the mutual relations of the rulers and the ruled become mutually understood and peacefully acquiesced in.
What the Prussian Conservatives so often insist on, viz., that a constitutional government should have been gradually developed, not suddenly substituted for a form of government radically different, is therefore by no means without truth. Whether we are to conclude that the fault has been in the process not beginning sooner, or merely in its being too rapid, is perhaps a question in which we and they might disagree. On the supposition that the present state of intelligence furnishes a sufficient basis for a constitutional government, it would seem as though the last fifty years has been a period long enough in which to put it into successful operation. All that the present generation know of politics has certainly been learned within that time: if the mere practical exercise of political rights is all that is needed in order to develop the new system, there might at least an excellent beginning have been made long before 1850. When we consider, therefore, that the Government, after taking the initiatory steps in promoting this development, stopped short, and rather showed a disposition to discourage it entirely, these clamors of the Conservatives must seem somewhat out of taste. To Americans especially, who can accommodate themselves to changes, even though they may be